New York State Consolidated Plan Federal Fiscal Years 2006 - 2010 and the Annual Action Plan for Program Year 2006
As approved by the U.S. Department of Housing and Urban Development December 29, 2005
[ Introduction| Housing and Homeless Needs Assessment | Housing Market Analysis ]
New York State Needs Assessment 2006-2010
General Needs
Section 91.305(a) General
"The Consolidated Plan must describe the State's estimated housing needs projected for the ensuing five-year period. Housing data included in this portion of the plan shall be based on U.S. Census data, as provided by HUD, as updated by any properly conducted local study, or any other reliable source that the State clearly identifies and should reflect the consultation with social service agencies and other entities conducted in accordance with §91.110 and the citizen participation process conducted in accordance with § 91.115. For a State seeking funding under the HOPWA program, the needs described for housing and supportive services must address the needs of persons with HIV/AIDS and their families in areas outside of eligible metropolitan statistical areas."
Overview
The estimates of housing need in this Consolidated Plan are based on data from the 2000 Census, especially those which have been custom-tabulated for HUD and made available to states and localities in a format commonly known as the "CHAS Data Book".
Because of the relative stability of the State's population and its housing inventory since 2000, the needs identified in the CHAS Data Book are projected to adequately reflect the nature and extent of New York State's general housing needs for 2006 - 2010, the five-year period of this Consolidated Plan.
In preparing its Consolidated Plan, New York State highlights, wherever possible, the general housing needs of those smaller cities, suburbs and rural areas of the State which do not directly receive HUD/CPD formula funding and which are not, therefore, covered by a locally-prepared Consolidated Plan. It is in those areas that State-administered funds are most often used to address unmet housing needs by assisting in the development and preservation of affordable housing and in the creation of homeownership opportunities for lower income households.
Defining Housing Needs
In its CHAS Data Book, HUD provides information on the number and percentage of households with "any housing problem". For the purposes of this Consolidated Plan, New York State interprets this to mean households with at least one housing need.
HUD defines two types of housing problems:
Cost Burden --HUD considers a household "cost burdened" when its gross housing costs, including utility costs, exceed 30% of its gross income. HUD considers a household "severely cost burdened" when its gross housing costs, including utility costs, exceed 50% of its gross income.
Overcrowding --HUD considers a household "overcrowded" when the ratio of occupants to rooms exceeds 1. HUD considers a household "severely overcrowded" when the ratio of occupants to rooms exceeds 1.5.
HUD's Consolidated Planning regulation at Section 91.305 (b)(1) requires the State to define the terms "standard condition" and "substandard condition but suitable for rehabilitation". For the purposes of this Consolidated Plan, New York State defines these terms as follows:
"Standard Condition"-a unit that meets or exceeds HUD's Section 8 quality standards.
"Substandard Condition but Suitable for Rehabilitation" -a unit that does not meet Section 8 quality standards but could be brought up to those standards for less than the unit's replacement cost.
For the purposes of this Consolidated Plan, New York State considers any household with a cost burden, overcrowded housing and/or substandard housing to be a household with one or more housing needs.
Measuring Housing Needs
HUD's Consolidated Planning regulation at Section 91.305 (a) requires the State to "estimate housing needs" based on "U.S. Census Data, as provided by HUD, as updated by any properly conducted local study, or any other reliable source that the State clearly identifies". New York State will, to the greatest extent possible, base the housing needs estimates in this Plan on Census 2000 data as custom tabulated for HUD and presented in its CHAS Data Book and State of the Cities database.
Estimating New York State's General Housing Needs
The following sections estimate the general housing needs for New York State using the categories and measurements of need provided by HUD and the U.S. Census Bureau.
Cost Burden
According to HUD's custom tabulations of Census 2000 data, cost burden is the most common housing need.
Statewide, 86% of households with at least one housing need have either a cost burden or a severe cost burden.
In CDBG "non-entitlement" areas where the State administers the Small Cities program and in HOME "non-participating jurisdictions" where the State administers HOME funds, 94% of households with at least one housing need have a cost burden or a severe cost burden.
Overcrowding
The 2003 American Community Survey indicates that approximately 3.4% of New York households live in overcrowded units (where the occupant/per room ratio is between 1 and 1.5) and an additional 1.9% of households live in "severely overcrowded" units (where the occupant/per room ratio exceeds 1.5).
The rates of overcrowding and severe overcrowding, while generally low, do vary substantially from place to place across the State. In New York City, for example, American Community Survey data for 2003 indicates that 5.8% of households are overcrowded and an additional 3.7% are severely overcrowded. At the same time, in Western New York, only 1.3% of the households are overcrowded and 0.3% severely overcrowded in the Buffalo/Niagara Falls Metropolitan Statistical Area (MSA).
Substandard Condition
For the purposes of this plan (as noted above), New York State considers housing units to be in "standard" condition, when they meet or exceed HUD Housing Quality Standards. Unfortunately, there is no available data which quantifies the extent to which units in New York State's housing inventory meet or fail to meet these standards. The Census Bureau does not gather detailed information on the condition of housing units. The only Census data which directly address housing quality are that which describe the extent to which units lack complete plumbing and/or kitchen facilities.
Data from the 2000 census indicate that:
- 0.7% of New York State's 3,739,247 owner-occupied units lack complete plumbing and/or kitchens:
14,438 lack complete plumbing; and
10,683 lack complete kitchens.
- 2.7% of New York State's 3,317,613 renter-occupied units lack complete plumbing and/or kitchens:
43,980 lack complete plumbing; and
45,168 lack complete kitchens.
These criteria do not address the extent to which serious deficiencies exist in other important building elements such as heating systems, roofs, windows, foundations, weatherization/insulation, etc. As a consequence, New York State believes that census data substantially understates the extent to which housing units in New York are substandard and in need of major repair or replacement.
In the absence of more direct information, the age of the housing stock is a widely used indicator of housing condition. As noted in "National Analysis of Housing Affordability, Adequacy and Availability: A Framework for Local Housing Strategies" (Urban Institute: 1993), "Older units tend to be more costly to repair or renovate, may not contain the amenities desired by households, and are much more likely to contain lead-paint hazards." Table 1 displays New York State's housing stock cross tabulated by year of construction.
Exhibit 1
New York State Housing Units
By Year of Construction
Year of Construction |
Total |
% of Total Housing Units |
Occupied |
% of Occupied Housing Units |
|---|---|---|---|---|
1980 - March 2000 |
1,119,586 |
15% |
1,010,121 |
14% |
1960 - 1979 |
1,986,718 |
26% |
1,835,782 |
26% |
1940 - 1959 |
2,174,766 |
28% |
2,021,983 |
29% |
1939 or Earlier |
2,398,237 |
31% |
2,188,974 |
31% |
Totals |
7,679,307 |
100% |
7,056,860 |
100% |
Exhibit 1 indicates the following.
- The stock of existing housing in New York is relatively old:
31% of all units in the State were constructed in 1939 or earlier;
29% were built between 1940 and 1959; and
26% additional units were built between 1960 and 1979.
Almost 86% of the State's housing was built before federal law banned the residential use of most lead-based paint in 1978.
Categories of Persons Affected
Section 91.305(b) Categories of Persons Affected
"(1) The Consolidated Plan shall estimate the number and type of families in need of housing assistance for extremely low-income, low-income, moderate-income, and middle-income families, for renters and owners, for elderly persons, for single persons, for large families, for persons living with HIV/AIDS and their families, and for persons with disabilities. The description of housing needs shall include a discussion of the cost burden and severe cost burden, overcrowding (especially for large families), and substandard housing conditions being experienced by extremely low-income, low-income, moderate-income, and middle-income renters and owners compared to the State as a whole. (The State must define in its consolidated plan the terms "standard condition" and "substandard condition but suitable for rehabilitation".)"
"(2) For any of the income categories enumerated in paragraph (b)(1) of this section, to the extent that any racial or ethnic group has disproportionately greater need in comparison to the needs of that category as a whole, assessment of that specific need shall be included. For this purpose, disproportionately greater need exists when the percentage of persons in a category of need who are members of a particular racial or ethnic group is at least 10 percentage points higher than the percentage of persons in the category as a whole."
Overview
This section presents an analysis of the housing needs of households in a range of HUD-adjusted area median family income (HAMFI) categories (i.e., < = 30%, > 30% to < = 50%, > 50% to < = 80% and > 80% to < = 95%) who live in "Elderly 1 and 2 Person", "Small Related", "Large Related" and "Other" types of households as required in section 24 CFR 91.305(b)(1) of the Consolidated Plan regulations. To avoid unnecessary duplication, a discussion of the housing needs of persons with HIV/AIDS and their families and of persons with disabilities - required by both 24 CFR 91.305 (b) and 24 CFR 91.305 (d) - is provided in a subsequent section describing non-homeless special needs populations.
Housing Needs by Income Category
In its CHAS Data Book, HUD calculates the HUD-adjusted area median family income (HAMFI) for each household and then places each household whose income is less than or equal to 95% of HAMFI into one, and only one, of the following income categories:
< = 30% of HAMFI;
> 30% to < = 50% of HAMFI;
> 50% to < = 80% of HAMFI; and
> 80% to < = 95% of HAMFI.
Wherever possible, New York State's Consolidated Plan will use these income categories in estimating and assessing housing needs.
Exhibit 2 displays data from the CHAS Data Book which describe the rate at which households in various income categories experience at least one housing need.
Exhibit 2
New York State Households
with "Any Housing Problem"
by Income Category
Income Category |
Total Households |
# and % of Households with |
|---|---|---|
|
< = 30% |
1,103,524 |
850,817 (77.1%) |
|
> 30% to < = 50% |
798,009 |
572,970 (71.8%) |
|
> 50% to < = 80% |
1,071,024 |
510,878 (47.7%) |
|
> 80% to < = 95% |
524,130 |
170,225 (32.5%) |
Exhibit 2 indicates the following.
- The lowest income households have high rates of housing need:
77.1% of households in the lowest income category (< = 30% of HAMFI) have at least one housing need; and,
71.8% of households in the next lowest category (> 30% to < = 50% of HAMFI) have at least one housing need.
- Higher income households have lower rates of housing need:
47.7% of households with incomes > 50% to < = 80% of HAMFI have at least one housing need; and,
32.5% of households with incomes > 80% to < = 95% of HAMFI have at least one housing need.
The rates of housing need show similar patterns in those smaller cities, suburbs and rural areas of the State which do not directly administer CDBG or HOME funds and which are, therefore, not covered by locally-developed Consolidated Plans. Exhibit 3 compares the number and percentage of households with at least one housing need for the State as a whole to the comparable numbers and percentages in the "non-entitlement" areas where the State administers the CDBG Small Cities program (column headed "State CDBG Households") and the "non-participating jurisdictions" where the State administers the HOME investment partnerships program (column headed "State HOME Households").
Exhibit 3
New York State Households
with "Any Housing Problem"
by Income Category
|
Income Category |
All New York State |
State CDBG |
State HOME |
|---|---|---|---|
|
< = 30% |
850,817 |
108,351 |
112,093 |
|
> 30% to < = 50% |
572,970 |
100,094 |
102,492 |
|
> 50% to < = 80% |
510,878 |
87,740 |
88,193 |
|
> 80% to < = 95% |
170,225 |
Not |
Not |
Exhibit 3 indicates thatat least one housing need is experienced by:
78.0% of the lowest income "State CDBG Households" -Households in "Non-Entitlement" areas where all CDBG funding is administered by New York State through its Small Cities Program.
78.3% of the lowest income "State HOME Households" -Households in smaller cities, suburbs and rural areas covered by the State-administered portion of the HOME Program.
In both CDBG "non-entitlement" areas and HOME "non-participating jurisdictions" the rate of housing needs decreases substantially as household income increases.
Housing Needs of Homeowners and Renters
Housing needs are experienced by both owners and renters. Exhibit 4 displays data from the CHAS Data Book cross-tabulated by income category and tenure type.
Exhibit 4
New York State Households
with "Any Housing Problem"
by Housing Tenure and Income Category
|
Income Category |
Homeowners |
Renters |
All NYS Households |
|---|---|---|---|
|
< = 30% |
190,396 (79.2%) |
660,291 (76.5%) |
850,817 (77.1%) |
|
> 30% to < = 50% |
196,137 (65.7%) |
377,104 (75.5%) |
572,970 (71.8%) |
|
> 50% to < = 80% |
225,949 (46.0%) |
285,276 (49.2%) |
510,878 (47.7%) |
|
> 80% to < = 95% |
123,920 (36.9%) |
46,305 (24.6%) |
170,225 (32.5%) |
Exhibit 4 indicates the following.
Homeowners in the lowest income category (< = 30% of HAMFI) are most likely to have at least one housing problem.
Among both homeowners and renters, lower income households are more likely to have a housing need than are households in any higher income category.
Cost Burden for Owners and Renters
Cost Burden is the most common housing need for both owners and renters. Most homeowners (94%) who have at least one housing need have a cost burden but only 6% have needs which are only related to their unit's condition and/or size. A somewhat larger percentage of renters have one or more housing needs which relate only to their unit's condition and/or size. Nevertheless, 81% of renter households with at least one housing need have a cost burden. Exhibit 5 displays CHAS data describing the number and percentage of households with a cost burden (i.e., those households whose housing costs exceed 30% of household income).
Exhibit 5
New York State Households
with a Cost Burden (Including Severe Cost Burden)
by Housing Tenure and Income Category
|
Income Category |
Homeowners |
Renters |
Total Households |
|---|---|---|---|
|
< = 30% |
187,752 (78.1%) |
628,355 (72.8%) |
815,504 (73.9%) |
|
> 30% to < = 50% |
192,554 (64.5%) |
345,637 (69.2%) |
538,656 (67.5%) |
|
> 50% to < = 80% |
216,125 (44.0%) |
208,159 (35.9%) |
425,197 (39.7%) |
|
> 80% to < = 95% |
N/A |
N/A |
N/A |
Exhibit 5 indicates that:
- Cost burden or severe cost burden is a housing need for many lower-income households:
596,431 homeowners with incomes less than or equal to 80% of HAMFI have a cost burden or severe cost burden; and
1,182,151 renters with incomes less than or equal to 80% of HAMFI have a cost burden or severe cost burden.
Owners are more likely than renters to have a cost burden or severe cost burden in the lowest income category and in the 50% to 80% income category.
- Cost burden needs diminish substantially as household income increases:
78.1% of owner households with incomes < = 30% of HAMFI and 72.8% of renters in this income category have a cost burden or severe cost burden; and
44.0% of owner households with incomes > 50% to < = 80% of HAMFI and 35.9% of renters in this income category have a cost burden or severe cost burden.
The most pressing cost burden needs are faced by those households who are "severely burdened" by housing costs which exceed 50% of household income. Exhibit 6 displays CHAS data describing, for owners and renters, the number and percentage of households with a severe cost burden.
Exhibit 6
New York State Households
with a Severe Cost Burden
by Housing Tenure and Income Category
|
Income Category |
Homeowners |
Renters |
Total Households |
|---|---|---|---|
|
< = 30% |
152,413 (63.4%) |
521,328 (60.4%) |
673,150 (61.0%) |
|
> 30% to < = 50% |
104,487 (35.0%) |
130,363 (26.1%) |
235,413 (29.5%) |
|
> 50% to < = 80% |
83,102 (16.9%) |
30,731 (5.3%) |
113,529 (10.6%) |
|
> 80% to < = 95% |
N/A |
N/A |
N/A |
Exhibit 6 indicates the following.
Lower-income owners and renters are much more likely to have a severe cost burden than higher income owners and renters.
Housing Needs of Elderly, Small-related, Large-related and Other Households
The rate of housing needs varies by household type among and between income categories. Exhibit 7 displays CHAS data cross-tabulating household type by income category.
Exhibit 7
New York State Households
With "Any Housing Problem"
by Tenure Type, Household Type and Income Category
|
Income Category |
Elderly |
Small Related |
Large |
All |
Total HHs with "Any Housing Problem" |
|---|---|---|---|---|---|
|
All New York State | |||||
|
< = 30% |
266,645 (71.8%) |
285,634 (82.3%) |
98,781 (93.2%) |
200,277 (71.8%) |
850,817 (77.1%) |
|
> 30% to < = 50% |
177,572 (59.4%) |
198,811 (77.2%) |
81,186 (87.6%) |
115,719 (77.7%) |
572,970 (71.8%) |
|
> 50% to < = 80% |
94,238 (31.4%) |
205,324 (50.9%) |
97,877 (71.4%) |
113,382 (49.1%) |
510,878 (47.7%) |
|
> 80% to < = 95% |
21,225 (18.%) |
79,605 (36.%) |
36,285 (50.%) |
33,110 (29.%) |
170,225 (33.%) |
|
Owner Households | |||||
|
< = 30% |
99,337 (79.1%) |
45,290 (81.5%) |
16,141 (89.4%) |
29,739 (72.2%) |
190,396 (79.2%) |
|
> 30% to < = 50% |
88,595 (54.4%) |
58,832 (78.6%) |
25,828 (86.6%) |
22,971 (74.1%) |
196,137 (65.7%) |
|
> 50% to < = 80% |
51,387 (25.8%) |
99,632 (58.6%) |
42,836 (68.2%) |
32,022 (54.1%) |
225,949 (46.0%) |
|
> 80% to < = 95% |
16,595 (18.0%) |
64,450 (43.2%) |
25,160 (47.3%) |
17,715 (43.3%) |
123,920 (36.9%) |
|
Renter Households | |||||
|
< = 30% |
167,308 (68.1%) |
240,344 (82.4%) |
82,640 (94.0%) |
170,538 (71.7%) |
660,291 (76.5%) |
|
> 30% to < = 50% |
88,977 (65.4%) |
139,979 (76.6%) |
55,358 (88.1%) |
92,748 (78.7%) |
377,104 (75.5%) |
|
> 50% to < = 80% |
42,851 (42.6%) |
105,692 (45.3%) |
55,041 (74.1%) |
81,360 (47.4%) |
285,276 (49.2%) |
|
> 80% to < = 95% |
4,630 (20.0%) |
15,155 (20.6%) |
11,125 (56.9%) |
15,395 (21.3%) |
46,305 (24.6%) |
Exhibit 7 indicates the following.
Regardless of household type, lower income households are more likely to have housing needs than are higher income households of the same type.
In each income category, the rate of housing needs is highest among "Large-related" households while the number of households with any housing problem is greatest for "Small-related" households.
Cost Burden by Income Category, Tenure and Household Type
Exhibits 8 through 13 display CHAS data on cost burden and severe cost burden cross-tabulated by household income category and household type.
Exhibit 8
New York State Owner Households
with a Cost Burden (including Severe Cost Burden)
by Household Type and Income Category
|
Income Category |
Elderly |
Small Related |
Large |
All |
Total Owner HHs with a Cost Burden |
|---|---|---|---|---|---|
|
< = 30% |
98,835 (78.7%) |
44,400 (79.9%) |
15,076 (83.5%) |
29,327 (71.2%) |
187,752 (78.1%) |
|
> 30% to < = 50% |
87,944 (54.0%) |
57,859 (77.3%) |
24,009 (80.5%) |
22,692 (73.2%) |
192,554 (64.5%) |
|
> 50% to < = 80% |
50,590 (25.4%) |
97,081 (57.1%) |
37,184 (59.2%) |
31,489 (53.2%) |
216,125 (44.0%) |
|
> 80% to < = 95% |
N/A |
N/A |
N/A |
N/A |
N/A |
Exhibit 8 indicates that among homeowners:
- "Large-related" households have the highest rates of cost burden or severe cost burden among households in the two lowest income categories:
83.5% in the lowest income category (households with incomes < = 30% of HAMFI) have a cost burden or severe cost burden; and
80.5% in the second lowest income category (households with incomes > 30% and < = 50% of HAMFI) have a cost burden or severe cost burden.
- The highest number of lower-income households with a cost burden are "Elderly 1 and 2 Person" households:
98,835 with incomes < = 30% of HAMFI; and
87,944 with incomes > 30% to < = 50% of HAMFI.
Exhibit 9
New York State Owner Households
with a Severe Cost Burden
by Household Type and Income Category
|
Income Category |
Elderly |
Small Related |
Large |
All |
Total Owner HHs |
|---|---|---|---|---|---|
|
< = 30% |
73,467 (58.5%) |
39,621 (71.3%) |
13,523 (74.9%) |
25,703 (62.4%) |
152,413 (63.4%) |
|
> 30% to < = 50% |
36,318 (22.3%) |
38,623 (51.6%) |
15,390 (51.6%) |
14,136 (45.6%) |
104,487 (35.0%) |
|
> 50% to < = 80% |
17,926 (9.0%) |
38,595 (22.7%) |
13,504 (21.5%) |
12,903 (21.8%) |
83,012 (16.9%) |
|
> 80% to < = 95% |
N/A |
N/A |
N/A |
N/A |
N/A |
Exhibit 9 indicates that among homeowners:
"Large-Related" and "Small-Related" households experience severe cost burden at similar rates in each income category.
A lower percentage of "All Other" and "Elderly 1 and 2 Person" households in the lowest income have a severe cost burden (62.4% and 58.5% respectively).
In the lowest income group (<=30% of area median income) the largest number of households with a severe cost burden (73,467) is in the Elderly 1 and 2 person category.
Exhibit 10
New York State Renter Households
with a Cost Burden (including Severe Cost Burden)
by Household Type and Income Category
|
Income Category |
Elderly |
Small Related |
Large |
All |
Total Renter HHs with a Cost Burden |
|---|---|---|---|---|---|
|
< = 30% |
164,114 (66.8%) |
227,802 (78.1%) |
70,156 (79.8%) |
166,019 (69.8%) |
628,355 (72.8%) |
|
> 30% to < = 50% |
87,344 (64.2%) |
129,745 (71.0%) |
38,581 (61.4%) |
90,273 (76.6%) |
345,637 (69.2%) |
|
> 50% to < = 80% |
40,940 (40.7%) |
76,294 (32.7%) |
14,930 (20.1%) |
76,210 (44.4%) |
208,159 (35.9%) |
|
> 80% to < = 95% |
N/A |
N/A |
N/A |
N/A |
N/A |
Exhibit 10 indicates that for renters:
- For all types of renter households, cost burden or severe cost burden is most likely for those in the lowest income category:
overall, 72.8% of the lowest income households (< =30% of HAMFI) have a cost burden versus 35.9% of households with incomes > 50% to < = 80%of HAMFI, for example.
A cost burden is experienced by a very large number of "Small-Related" households in the lowest income category:
227,802 households with incomes < = 30% of area median have a cost burden.
Exhibit 11
New York State Renter Households
with a Severe Cost Burden
by Household Type and Income Category
|
Income Category |
Elderly |
Small Related |
Large |
All |
Total Renter HHs |
|---|---|---|---|---|---|
|
< = 30% |
122,594 (49.9%) |
195,426 (67.0%) |
57,672 (65.6%) |
145,326 (61.1%) |
521,328 (60.4%) |
|
> 30% to < = 50% |
37,142 (27.3%) |
44,406 (24.3%) |
9,362 (14.9%) |
39,598 (33.6%) |
130,363 (26.1%) |
|
> 50% to < = 80% |
7,242 (7.2%) |
6,999 (3.0%) |
966 (1.3%) |
15,620 (9.1%) |
30,731 (5.3%) |
|
> 80% to < = 95% |
N/A |
N/A |
N/A |
N/A |
N/A |
Exhibit 11 indicates that:
More than 521,000 renters in the lowest income category (< = 30% of HAMFI) have rents which exceed 50% of their household income:
67.0% of "Small-related" households in this income category have a severe cost burden;
65.6% of "Large-related" households have a severe cost burden;
61.1% of "Other" households have a severe cost burden; and
49.9% of "Elderly 1 and 2 Person" households have a severe cost burden.
Summary of Housing Needs by Income Category and Household Type
2000 Census data indicate housing cost burden is the most prevalent need for New York households. The 2000 Census returns, as tabulated for HUD's CHAS Data Book, indicate that 32% of New York households have housing costs which are more than 30% of their income, including 16% of households whose housing costs equal or exceed 50% of their household income.
Households with incomes < = 30% of HAMFI:
have the highest rate of Federally-defined housing needs, regardless of whether they are owners or renters;
among renters, 75.5% have at least one housing need, 72.8% have a cost burden or severe cost burden and 60.4% have a severe cost burden;
among owners, 79.2% have one or more housing needs, 78.1% have a cost burden or severe cost burden and 63.4% have a severe cost burden; and
housing needs are most likely found in Large-related households (93.2%) followed by Small-related households (82.3%).
Households with incomes > 30% to < = 50% of HAMFI:
among renters, 76.5% have at least one housing need, 69.2% have a cost burden or severe cost burden and 26.1% have a severe cost burden;
among owners, 65.7% have one or more housing needs, 64.5% have a cost burden or severe cost burden and 35.0% have a severe cost burden; and
housing needs are most likely found in Large-related households (87.6%) followed by "All Other" households (77.7%) and Small-related households (77.2%).
Households with incomes > 50% to < = 80% of HAMFI:
among renters, 49.2% have at least one housing need, 35.9% have a cost burden or severe cost burden and 5.3% have a severe cost burden;
among owners, 46.0% have one or more housing needs, 44.0% have a cost burden or severe cost burden and 16.9% have a severe cost burden; and
housing needs are most likely found in Large-related households (71.4%) followed Small-related households (50.9%) and "All Other" households (49.1%).
Households with incomes > 80% to < = 95% of HAMFI:
among renters, 24.6% have at least one housing need;
among owners, 36.9% have at least one housing need; and
housing needs are most likely found in Large-related households (49.8%) followed by Small-related households (35.8%) and "All Other" households (29.2%).
Housing Needs of Single Persons
HUD regulation 24 CFR Section 91.305(b)(1) requires an assessment of the housing needs of "single persons". Unfortunately, HUD's CHAS Data Book does not provide any information which directly addresses the housing needs of single persons. The closest category provided in the CHAS Data Book is "All Other". This category includes households of single persons under age 62 but also includes households with non-related individuals.
Housing Needs of Persons with Disabilities
HUD regulation 24 CFR Section 91.305(b)(1) requires an assessment of the housing needs of "persons with disabilities". HUD's CHAS Data Book includes data which describe the housing needs of persons "with mobility and self care limitations" which include: "all households where one or more persons has 1) a long-lasting condition that substantially limits one or more basic physical activity, such as walking, climbing stairs, reaching, lifting, or carrying and/or 2) a physical, mental, or emotional condition lasting more than 6 months that creates difficulty with dressing, bathing, or getting around inside the home". These data indicate that approximately 18% of all households in New York State (1,270,720 of 7,055,762) include one or more persons with a mobility or self-care limitation. Of these 1.2 million households, about half (625,455) are homeowners and half (645,265) are renters. Among households which include a person with a mobility or self-care limitations, those with lower incomes (i.e., at or below 80% of area medium income) often have one or more HUD-defined housing problems. Among owner households in this category, 41.9% have one or more housing problems. And 76.6% of renter households in this category have one or more housing problems.
Exhibit 12
New York State Households
Which Include a Person With a Mobility or Self Care Limitation
and have "Any Housing Problem"
by Household Type and Income Category
|
Income Category |
Owners |
Renters |
Total Households |
|---|---|---|---|
|
< = 30% |
55,939 (81.2%) |
198,336 (74.8%) |
254,208 (76.1%) |
|
> 30% to < = 50% |
49,694 (61.4%) |
86,956 (68.8%) |
136,627 (65.9%) |
|
> 50% to < = 80% |
44,514 (39.6%) |
47,190 (45.8%) |
91,564 (42.5%) |
|
Total < = 80% |
150,147 (57.3%) |
332,482 (67.2%) |
482,399 (63.7%) |
Exhibit 12 indicates that:
Many disabled New Yorkers have housing problems:
482,399 New York households include one or more persons with a mobility or self-care limitation; have at least one housing problem; and, have incomes at or below 80% of the area median income; and
nearly two thirds (63.7%) of lower income households which include one or more persons with a mobility or self-care limitation have one or more housing problems.
For persons with disabilities as for others, the likelihood of housing problems increases as income decreases:
among households which include one or more persons with a mobility or self-care limitation, those most likely to have a housing problem are in the lowest income category (i.e., 76.1% of households at or below 30% of median area income);
the rate of housing problems is slightly lower (65.9%) for those in the next higher income category (i.e., between 30% and 50% or area median income); and
lower still (42.5%) for those with incomes between 50% and 80% of area median income.
Housing Needs of Racial and Ethnic Minorities
HUD regulation 24 CFR Section 91.305(b)(2) requires an assessment of the housing needs of "any racial or ethnic group" to the extent that that group "has disproportionately greater need in comparison to the needs of that category as a whole". For this purpose HUD regulation states that "disproportionately greater need exists when the percentage of persons in a category of need who are members of a particular racial or ethnic group is at least 10 percentage points higher than the percentage of persons in the category as a whole."
Exhibits 13 and 14 below display the percentage of owner and renter households with one or more housing needs cross-tabulated by income category and the race/ethnicity of the head of the household.
Exhibit 13
New York State Owner Households
with "Any Housing Problem"
by Income Category and Racial or Ethnic Group
|
Income Category |
White |
Black |
Asian |
Hispanic |
Total Owner HHs with "Any Housing Problem" |
|---|---|---|---|---|---|
|
< = 30% |
80% |
76% |
80% |
82% |
79% |
|
> 30% to < = 50% |
62% |
78% |
87% |
84% |
66% |
|
> 50% to < = 80% |
41% |
64% |
75% |
71% |
46% |
|
> 80% to < = 95% |
34% |
52% |
63% |
58% |
37% |
Using HUD's definition of "disproportionately greater need" Exhibit 13 indicates that:
Among owner households, "disproportionate needs" are experienced by:
Black, Asian and Hispanic households with incomes greater than 30% of HAMFI and less than or equal to 95% of HAMFI.
Exhibit 14
New York State Renter Households
with "Any Housing Problem"
by Income Category and Racial or Ethnic Group
|
Income Category |
White |
Black |
Asian |
Hispanic |
Total Renter HHs With "Any Housing Problem" |
|---|---|---|---|---|---|
|
< = 30% |
76% |
75% |
77% |
80% |
77% |
|
> 30% to < = 50% |
74% |
71% |
90% |
78% |
76% |
|
> 50% to < = 80% |
43% |
46% |
75% |
58% |
49% |
|
> 80% to < = 95% |
19% |
24% |
51% |
40% |
25% |
Using HUD's definition of "disproportionately greater need" Exhibit 14 indicates that:
Among renter households, "disproportionate needs" are experienced by:
Asian households with incomes greater than 30% of HAMFI and less than or equal to 95% of HAMFI; and
Hispanic households with incomes > 80% to < = 95% of HAMFI.
Homeless Needs
Section 91.305(c) Homeless Needs
"The plan must describe the nature and extent of homelessness (including rural homelessness) within the state, addressing separately the need for facilities and services for homeless individuals and homeless families with children, both sheltered and unsheltered, and homeless subpopulations, in accordance with a table prescribed by HUD. This description must include the characteristics and needs of low-income individuals and families with children (especially extremely low-income) who are currently housed but threatened with homelessness. The plan also must contain a narrative description of the nature and extent of homelessness by racial and ethnic group, to the extent information is available."
Overview
This section describes the nature and extent of homelessness, including rural homelessness, within New York State. It includes characteristics and needs of low-income individuals and families threatened with homelessness as well as homeless subpopulations.
It describes the needs of homeless individuals, families and subpopulations in each of the following components of the Continuum of Care: homelessness prevention, outreach and assessment, emergency shelter, transitional housing, permanent supportive housing, permanent housing, and, supportive services. Table 1-A,Homeless and Special Needs Populations, summarizes data obtained from 28 Continuum of Care applications submitted in 2004 which represent 36 counties throughout the State.
This section also describes State-administered programs available to specific homeless persons in each county of the State.
Definition of Homelessness
The definition of "homeless" is contained in the Stewart B. McKinney Homeless Assistance Act of 1987, which states that a homeless person is one who is:
sleeping in places not meant for human habitation, such as cars, parks, sidewalks and abandoned buildings;
sleeping in an emergency shelter;
living in transitional or supportive housing after having originally come from the streets or an emergency shelter;
staying for a short period (up to thirty days) in a hospital or other institution but who would ordinarily be sleeping in one of the above places;
being evicted within a week from a private dwelling unit ; or
being discharged within a week from an institution in which the person has been a resident more than thirty consecutive days without having an adequate place to live in subsequent to discharge.
Nature of Homelessness
There is currently limited ability to collect uniform statistical information about the characteristics of the various populations who are considered homeless throughout New York's 62 counties. Ten counties have fully operational Homeless Management Information Systems (HMIS), fourteen counties are in the implementation phase and nine counties applied for funding in 2005. It is expected that as the number of counties with operational HMIS continues to grow, the ability to collect and report statistical information will improve as well.
Statewide information on the nature and extent of homelessness by racial and ethnic group is not included because these data were not identified in a manner that could be analyzed. However, according to the Coalition for the Homeless, approximately 90% of homeless individuals in New York City are Black or Latino, although only 53% of New York City's total population is Black or Latino.
Extent of Homelessness
Table 1A presents estimates of the number of homeless individuals and persons in families; estimates of the homeless persons in subcategories and an inventory of emergency, transitional and permanent supportive housing as reported by the 28 Continuum of Care 2004 applications which cover 36 counties. These numbers are not all inclusive and lack consistency, but represent the best available data.
HUD Table 1A
Homeless and Special Needs Populations
Continuum of Care: Housing Gap Analysis Chart
|
Current Inventory |
Under Development |
Unmet Need/ Gap | ||
Individuals | ||||
|
Beds |
Emergency Shelter |
16,441 |
175 |
965 |
|
7,367 |
309 |
1,908 | ||
|
18,984 |
1,837 |
14,266 | ||
|
Total |
42,792 |
2,321 |
17,139 | |
Persons in Families with Children | ||||
|
Beds |
Emergency Shelter |
21,040 |
150 |
1,338 |
|
18,980 |
717 |
751 | ||
|
11,190 |
1,277 |
10,877 | ||
|
51,210 |
2,144 |
12,966 | ||
Continuum of Care: Homeless Population and Subpopulations Chart
|
Part 1: Homeless Population |
Sheltered |
Unsheltered |
Total | |
|
Emergency |
Transitional | |||
|
1. Homeless Individuals |
16,024 |
6,477 |
4,814 |
27,315 |
|
2. Homeless Families with Children |
6,462 |
5,454 |
170 |
12,086 |
|
2a. Persons in Homeless Families with Children |
21,572 |
17,393 |
466 |
39,431 |
|
Total(lines 1 + 2a) |
37,596 |
23,870 |
5,280 |
66,746 |
|
Part 2: Homeless Subpopulations |
Sheltered |
Unsheltered |
Total |
|
1. Chronically Homeless |
4,934 |
3,951 |
8,885 |
|
2. Seriously Mentally Ill |
8,303 |
||
|
3. Chronic Substance Abuse |
13,316 | ||
|
4. Veterans |
5,423 | ||
|
5. Persons with HIV/AIDS |
5,899 | ||
|
6. Victims of Domestic Violence |
5,719 | ||
|
7. Youth |
421 | ||
Although there are 26 counties not represented in a Continuum of Care and therefore not included in Table 1A data, the NYS Office of Temporary and Disability Assistance (OTDA) reports that 98% of homeless individuals assisted by Local Department of Social Services (LDSS) and 99% of homeless families assisted by LDSS are covered under a Continuum.
According to Table 1A, there are unmet housing needs for 17,139 individuals and 12,966 persons in families with children.
Needs within Each Component of the Continuum of Care
Within each Continuum of Care for homeless individuals and families, there are the following separate components:
homeless prevention;
outreach and assessment;
emergency shelter;
transitional housing;
permanent housing with supportive services; and
other supportive services.
Within each of these components, housing and services targeted to special needs populations such as persons with mental illness, persons with histories of chronic substance abuse, persons with co-occurring mental illness and substance abuse, persons living with HIV/AIDS, victims of domestic violence, homeless youth, and veterans are provided.
Homelessness Prevention
The primary cause of homelessness in the State of New York is lack of financial resources with which to pay for housing. Other causes include:
disability- such as mental illness, substance abuse or HIV/AIDS;
danger- from domestic violence, sexual abuse or neglect; and
lack of access -to sustained supportive services.
Homeless prevention programs are designed to address these problems so that homelessness does not occur.
Estimate of Need
Unmet needs remain despite the wide range of homeless prevention services available in New York State. Many localities, particularly rural areas, have an insufficient number of programs to meet the need for services. In addition, due to funding limitations, nearly all of the existing programs are forced to limit the amount of assistance that can be provided to any one individual. Due to escalating housing and living costs, the amount of assistance provided may not be sufficient to ultimately prevent the recipient from becoming homeless.
State Response
Local social services districts provide emergency assistance to those who are at risk of homelessness. Payment of outstanding rent costs can be made for those who, as a result of a financial crisis, are unable to make rental payments. Emergency assistance with utility bills or payment for overdue utility bills can also be provided.
Five programs administered by the New York State Office of Temporary and Disability Assistance make grants to not-for-profit agencies for the provision of homeless prevention services. Two are federally funded and three are state funded:
Emergency Shelter Grant Program (ESGP) - Federally Funded
Homelessness prevention is one of the four goals of the ESGP. In 2005, a total of $3.03 million was granted through the Office of Temporary and Disability Assistance to not-for-profits for operation of homeless shelters, provision of essential social services to homeless persons, and homeless prevention services, serving a total of 26,197 households.
Supportive Housing for Families and Young Adult (SHFYA) - Federally Funded
SHFYA is similar to the Single Room Occupancy (SRO) program, but is targeted to families and youth. Housing providers can use the funding for the provision of supportive services to stabilize homeless youth and families to prevent further episodes of homelessness. The current SHYFA budget is $2,000,000, with the program serving an estimated 1,494 households per year.
Homelessness Intervention Program (HIP) - State Funded
Established by the New York State Legislature in July of 1998, HIP issues grants to eligible social services districts and/or not-for-profit organizations that provide services to single individuals and/or families who are homeless or at risk of becoming homeless. These services are comprehensive supportive services designed to stabilize households by assisting them to avoid homelessness and for those who are currently homeless by facilitating the transition from homelessness to permanent housing.
The HIP is a performance based grant that allows for payment of various milestone achievements with the intent of maintaining the individual/household in stable housing for a minimum of 270 days. Eligible projects are reimbursed for the achievement of designated contract outcomes, which place and maintain a household in affordable, permanent housing and/or successful prevention of an eviction and maintenance of the household in affordable, permanent housing.
The HIP is composed of three service strategies to effectuate stabilized housing; Housing Location, Aftercare Prevention (NYC sponsors only) and/or Eviction Prevention services. Housing Location is the process by which the sponsor with direct staff assists the household to locate and move into safe, affordable permanent housing. Prevention/aftercare is the provision of services to those households referred out of the NYC shelter system that are designed to assist families in maintaining the housing that has been secured. Eviction prevention is the service designed to address and resolve housing and service issues for those households who are in imminent danger of being evicted from their dwellings. In 2005, HIP provided $5,968,406 in funding to programs located throughout the state, serving 6,135 households.
Supplemental Homelessness Intervention Program (SHIP) - State Funded
SHIP uses Temporary Assistance for Needy Families (TANF) funding to pay for services that are similar to the HIP program. In 2005, New York State provided $4 million in SHIP funding to serve a total of 4,512 households.
SRO Supportive Services Program - State Funded
This program provides grants for the provision of support services to low-income tenants in Single Room Occupancy (SRO) housing operated by not-for-profit agencies. The objective is to assist SRO tenants in maintaining and/or enhancing independent living and preventing homelessness. The 2005-06 Fiscal Year's funding is $13.2 million, which supports 10,751 units of SRO housing.
Other Prevention Programs
Many not-for-profit agencies have been able to obtain federal funding for homeless prevention services. For example, Emergency Shelter Grant Program funds received directly from HUD through local consolidated planning processes provide emergency financial assistance and supportive services to those at risk of becoming homeless. Federal Emergency Management Agency funding is also used by not-for-profit agencies to provide emergency financial assistance in order to prevent homelessness.
In addition to prevention programs for the general population of homeless persons, there are homeless prevention programs targeted to specific populations. Some of the Housing Opportunities for Persons With AIDS f(HOPWA) funding administered through the New York State Office of Temporary and Disability Assistance is used to pay for short-term rent; mortgage and utility payments for persons with HIV/AIDS who are at risk of becoming homeless; similar funding for persons with HIV/AIDS who are at risk of homelessness is provided to not-for-profit agencies throughout the state by the New York State Department of Health's AIDS Institute. The Human Resource Administration in New York City provides homelessness services targeted to victims of domestic violence including, counseling, safety planning, information and referral services, advocacy and community education. Some not-for-profit agencies that serve homeless and runaway youth in New York State receive funding from the U. S. Department of Health and Human Services' Administration for Children and Families to provide homeless prevention services to that population.
Outreach and Assessment
Outreach services are the means by which homeless persons are engaged in the Continuum of Care. There are a variety of different types of outreach, including street outreach, outreach to service providers, and hotlines. Once the outreach results in engagement of services, providers conduct an in-depth assessment of participant needs.
Estimate of Need
Although New York State has a wealth of outreach services for homeless individuals and families, more resources are needed. Because outreach is the means by which homeless persons enter the Continuum of Care, it is essential that sufficient outreach services are made available. Additional resources are needed in rural counties where homeless persons may be difficult to identify and connect with services. Additional outreach services are also needed in urban areas of the State where there are large populations of chronically homeless persons with multiple challenges, such as mental illness, histories of chronic substance abuse, developmental disabilities, physical disabilities and/or HIV/AIDS. Outreach efforts for specific populations such as homeless youth, victims of domestic violence, and veterans must be maintained and expanded. In order to be effective, it is essential that street outreach services targeted to specific populations be provided in a culturally competent manner by staff who are understanding of the populations served.
State Response
A wide array of street outreach programs are located in jurisdictions throughout the State. Many not-for-profit agencies that provide emergency services and/or shelter to homeless individuals and families have a street outreach component and also provide ongoing outreach to local social service agencies. State-administered Emergency Shelter Grant Program funds are often used for this purpose, as is funding obtained from HUD through the Continuum of Care Supportive Housing Program.
Street outreach is also provided to specific subpopulations of homeless persons throughout the State. For example, some county mental health departments have mobile crisis teams that provide an emergency response to persons with mental illness who are in need of immediate treatment and/or housing. Local AIDS service organizations often provide street outreach services to homeless persons who have HIV/AIDS or are at risk of acquiring it. Some programs serving homeless and runaway youth receive funding from the U. S. Department of Health and Human Services' Administration for Children and Families and/or other sources to provide street outreach to at-risk youth. There is also a national hotline that can be used by homeless young people to acquire emergency shelter and services. Similarly, there is a statewide domestic violence hotline as well as local domestic violence hotlines in each county that link victims of domestic violence with needed housing and services. Domestic violence shelters throughout the state also receive funding from local social service districts for outreach services. Street and agency outreach for veterans are provided by not-for-profit veterans' organizations, as well as by the Veterans Administration. The Veterans Administration has an outreach program specifically targeted to homeless veterans and also makes use of its "Stand Downs", which are a sort of "resource fair" especially designed for veterans, to ensure that homeless veterans have access to housing and services.
Emergency Shelter
Emergency shelter is the initial housing component in the Continuum of Care. Emergency shelters sponsored by governmental and not-for-profit agencies offer immediate housing and supportive services to those without another place to live. They provide stabilization and support until movement along the Continuum to more permanent housing is possible.
Estimate of Need
Many communities within the State lack sufficient emergency shelter capacity to address the needs of those who find themselves in a housing crisis and in need of immediate shelter. In many rural communities, there are no emergency shelters at all and the community is reliant upon motel vouchers paid for by local departments of social services. Therefore, there is a need for 965 additional emergency shelter beds for individuals and additional beds for families. The regions in which the need for a substantial number of additional emergency shelter beds for homeless individuals have been identified include Chautauqua (70), Erie (79), Nassau (168), Orange (109), and Sullivan (77) Counties. The following counties have indicated that a large number of additional emergency shelter beds for homeless families are needed: Albany County (115), Nassau County (470), and Sullivan (125) Counties.
Emergency shelter providers in all areas of the State have identified a need for enhanced resources for supportive services such as case management, assessment and treatment for mental illness and substance abuse, life skills training, employment services, benefits advocacy, legal services, housing placement, financial assistance, parenting support, HIV-related services, and domestic violence services. The provision of these services is essential in helping homeless persons move forward along the Continuum of Care.
State Response
The New York State Office of Temporary and Disability Assistance tracks data from the emergency shelters it certifies and collects data from as many other emergency shelter programs as possible. It is currently difficult, however, to obtain detailed statewide information about emergency efforts that are coordinated on a local basis. The 2004 Continuum of Care Homeless Assistance applications from localities throughout the State of New York indicate there are a total of 16,441 emergency shelter beds for single individuals and 21,040 beds for homeless families.
The State's emergency shelter system varies from county to county. Local social services districts provide funding for shelter services for the general population of homeless individuals and families through provision of per diem shelter rates to emergency shelters and/or reimbursement for overnight stays in local motels. Emergency Shelter Grant Program funding and other federal funding is used to pay for some of the costs of shelter operation. In addition, emergency shelter is provided for specific populations of homeless individuals and families such as victims of domestic violence and runaway and homeless youth. The New York State Office of Children and Family Services certifies emergency shelter facilities for these populations. Funding for emergency shelter for victims of domestic violence is provided by local social service districts and state and federal sources. Emergency shelters for runaway and homeless youth are funded through the New York State Runaway and Homeless Youth Act as well as through federal funding from the U. S. Department of Health and Human Services' Administration on Children and Families.
Continuum of Care coordinating bodies throughout New York State have been sensitized to the "Housing First" philosophy in which the primary focus is on moving individuals and families into permanent supportive housing as quickly as possible, thereby eliminating the need for increased emergency shelter capacity. There is agreement that all too many homeless individuals and families remained in emergency shelter because of the lack of availability of permanent supportive housing. Continuum of Care coordinating bodies throughout New York State have therefore committed themselves to vastly expanding the number of permanent supportive housing units.
Transitional Housing
The next phase of the Continuum of Care is transitional housing, which provides housing for up to 24 months accompanied by the supportive services necessary to prepare homeless individuals and families for permanent housing or permanent housing with supportive services.
Estimate of Need
Although localities participating in the Continuum of Care process have focused largely on the creation of additional permanent supportive housing units as the ultimate solution to ending homelessness, there remains a need for transitional housing for some populations, including homeless persons with severe mental illness, persons with histories of chronic substance abuse, veterans, victims of domestic violence, and homeless youth. This is especially true for homeless persons with special needs who have lived in congregate environments for a large part of their lives and have little or no independent living skills.
There is an overall need for more transitional housing resources in the State. There is a statewide gap of 1,908 transitional housing beds for individuals and a gap of 751 transitional housing beds for families. Jurisdictions identifying the greatest need for additional transitional housing beds for homeless individuals include Albany County (197), Erie County (84), Nassau County (320), New York City (520), and Tompkins County (84). Localities indicating a substantial need for additional transitional housing beds for families are Erie County (76), Monroe County (71), and Nassau County (85).
State Response
Transitional housing programs throughout the State of New York are targeted to special needs populations. For example, the New York State Office of Mental Health (OMH) funds or operates over 9,500 transitional housing beds/units in certified residential treatment programs throughout the state. The New York State Office of Alcoholism and Substance Abuse Services (OASAS) also provides transitional housing programs throughout the state. OASAS funds both alcoholism halfway houses and residential drug free programs, with a combined capacity of more than 2,300 transitional housing beds.
There are a total of 450 transitional housing beds for victims of domestic violence throughout the State. The New York State Office of Children and Families has certified 14 transitional housing programs for homeless youth with a total capacity of 156 beds.
Permanent Housing with Supportive Services
Once stabilized in emergency and/or transitional housing, the majority of homeless persons are able to move along the Continuum of Care to permanent housing. Some homeless persons, especially those with special needs such as persons with mental illness and/or chronic substance abuse histories, persons living with HIV/AIDS, victims of domestic violence, homeless youth, and veterans, may require ongoing supportive services that are integrated with permanent housing. Permanent supportive housing programs provide affordable housing coupled with supportive services such as case management, substance abuse and mental health assessment and treatment, health care, employment training and placement, transportation, childcare, and other essential services.
Estimate of Need
There are currently 18,984 permanent supportive housing units targeted to homeless persons with disabilities in New York State, and 11,190 beds for members of homeless families. Despite these resources, many more are needed. In order to alleviate homelessness in New York State, there must be an expansion of permanent housing resources. The findings indicate a statewide need for 14,266 additional permanent supportive housing beds for individuals and 11,080 beds for families. The localities that indicated the highest need for additional permanent supportive housing beds for individuals were Albany County (573), Erie County (193), Nassau County (300), New York City (10,327), Orange County (184), Rensselaer County (233), Schenectady County (296), Suffolk County (634), and Westchester County (390). Jurisdictions that indicated the greatest need for additional permanent supportive housing beds for families included Chautauqua County (840), Nassau County (1,000), New York City (5,319), Suffolk County (680), and Westchester County (1,378).
State Response
The New York State Office of Temporary and Disability Assistance administers several programs that provide permanent supportive housing:
Homeless Housing and Assistance Program (HHAP)
HHAP provides funding to acquire, construct, and/or rehabilitate housing for homeless individuals and families. Over seventy-five percent of the beds funded under the program provide permanent supportive housing. Since its implementation 21 years ago, HHAP has awarded more than $572 million in program grants and loans to 552 projects throughout the state to provide more than 11,500 housing units for over 21,110 homeless persons. HHAP has a strong commitment to the development of housing for persons with HIV/AIDS and their families. To date, over $87 million of HHAP funding has been dedicated to the development of 53 AIDS projects with over 1,168 housing units, housing a total of 1,692 individuals. The Office of Temporary and Disability Assistance also administers the Operational Support for AIDS Housing (OSAH) Program, which provide supplemental funding for operational costs for AIDS housing programs that have received capital financing through HHAP.
SRO and Supportive Housing for Families and Young Adults (SHFYA)
The previously mentioned SRO and Supportive Housing for Families and Young Adults (SHFYA) programs, also administered by the Office of Temporary and Disability Assistance, provide greatly needed operating funding for permanent supportive housing programs. In addition, the Office of Temporary and Disability Assistance is responsible for distributing and monitoring federal Housing Opportunities for Persons with AIDS (HOPWA) funding to localities within New York State that are not served by their own Eligible Metropolitan Statistical Areas (EMSAs). Because of the availability of state HHAP funding for capital costs, a decision was reached by the Office of Temporary and Disability Assistance to target most of its HOPWA funding to tenant-based rental assistance for permanent supportive housing programs, which has been identified by statewide AIDS housing needs assessment as being the greatest need. In the current year, New York State expects to distribute more than $1.7 million in HOPWA funding to localities within the State of New York, providing housing and supportive services to over 2,500 households.
The New York State Office of Mental Health (OMH) funds permanent supportive housing programs for persons with severe mental illness. Throughout the state, OMH has a total of 14,219 permanent supportive housing beds for individuals and 2,413 such beds for families of persons with severe mental illness. The New York State Office of Alcoholism and Substance Abuse Services (OASAS) has 814 permanent supportive housing units throughout the state, many of them partially funded through the Continuum of Care Shelter Plus Care program.
Local Continuum of Care coordinating bodies have made the development of new permanent supportive housing programs a top priority for HUD's Continuum of Care funding process. Continuum of Care funding is used not only for the capital costs (acquisition, rehabilitation, and construction) for new permanent supportive housing programs, but also to provide rental assistance subsidies for new and existing market rate apartment units.
Other Supportive Services
Supportive services assist homeless persons and families in moving forward along the Continuum of Care toward increased self-sufficiency. Supportive services include case management, assessment and treatment for mental illness and substance abuse, life skills training, employment services, benefits advocacy, legal services, housing placement, financial assistance, parenting support, HIV-related services, domestic violence services, and services that address other essential needs.
Estimate of Need
There is a consensus of opinion among policymakers, governmental agencies, and providers that homelessness will not be alleviated solely by the creation of additional housing resources, but will also depend upon the expansion of existing supportive services programs.
State Response
New York State governmental agencies and the not-for-profit agencies they fund provide an extensive array of supportive services. Additional funding for supportive services is received directly from the federal government as well as from local government, private foundations, corporations, and individual donors.
Housing Needs of Homeless Subpopulations
The following is a brief discussion of the particular housing needs of various subpopulations among the homeless.
Housing Needs in Rural and Suburban Communities
The preceding analysis of existing needs along the Continuum of Care relies heavily upon data obtained from the Continuum of Care funding applications submitted by jurisdictions throughout New York State. Currently, it is not possible to obtain quantifiable data from localities that do not participate in the local Continuum of Care process.
Anecdotal evidence suggests that, despite its relative invisibility, homelessness does exist in rural and suburban communities. Homeless persons in rural areas do not live "on the street" because there literally are no streets to live on. However, they may be forced to stay in substandard housing with inadequate plumbing and/or electrical systems or to live in dilapidated structures that lack insulation. In the summer months, many impoverished persons living in rural areas sleep in tents in local parks or campgrounds, or in their cars. In the winter months, they may move from one friend or relative's house to another, often splitting up their families in doing so. They may sleep in church basements or in other structures that are not meant to provide overnight shelter. Lack of resources and fear of social stigma keep many homeless persons in rural areas from obtaining needed services.
Homeless persons in suburban areas are equally invisible. They too may be forced to "double up" with family and friends, moving from house to house in order to find shelter.
In suburban areas in which there are no emergency shelters, local social services districts provide funding for overnight stays in motel rooms.
Most of the housing and services for homeless persons in New York State are located in cities or large urban areas. In order to access these resources, homeless persons in rural and suburban areas often have to uproot themselves from their communities and move to locations where housing and services are available.
Chronically Homeless Persons
Throughout New York State, localities have begun to focus on the needs of chronically homeless persons defined by HUD as unaccompanied adults with disabilities who have been homeless continuously for one year, or have had four episodes of homelessness in the last three years. Local Continuum of Care coordinating bodies have worked hard to create "low-demand" and "Housing First" models to move chronically homeless persons off the street and into permanent housing. A number of communities in New York State, including Albany County, Erie County, Nassau County, Schenectady County, the City of Rochester, the City of Syracuse, Westchester County, and the City of Yonkers, are in the process of developing Ten Year Plans to End Homelessness that address the needs of chronically homeless persons. New York City has already completed its Ten Year Plan and is in the process of implementing it.
Table IA, indicates that Continuum of Care coordinating bodies across the State have identified a total of 4,934 sheltered chronically homeless persons and 3,951 unsheltered, chronically homeless persons throughout the state. As expected, urban localities reported having the most chronically homeless persons, both sheltered and unsheltered. These included New York City (6,381), Suffolk County (629), and Erie County (303). All localities that participate in the Continuum of Care process have developed strategies for ending chronic homelessness, which include some or all of the following: enhanced street outreach; development of better linkages with soup kitchens and other programs that serve chronically homeless persons; creation of day shelters and drop-in shelters for chronically homeless persons; development of "safe havens" and other "low-demand" housing models; use of a "Housing First" philosophy; provision of substance abuse and/or mental health services on demand; and redirection of funding to programs that serve chronically homeless persons.
Persons with Serious Mental Illness
Adults diagnosed with serious mental illness are persons age 18 or older, who currently meet the criteria for a Diagnostic and Statistical Manual of Mental Disorder mental illness diagnosis and experience substantial impairments in functioning due to the severity of their chronic condition. These adults currently experience substantial impairment in a number of areas of role performance or are dependent on substantial treatment, rehabilitation, and support services in order to control or maintain functional capacity. Furthermore, they have experienced substantial impairment in functioning due to mental illness for an extended duration on either a continuous or episodic basis.
Exhibit 15 displays data from the New York State Office of Mental Health's "Patient Characteristics in 2003", the most recent year for which data are available, which indicate, by region, the number of homeless persons served in a one-week survey period.
Exhibit 15
New York State Office of Mental Health
Patients Served During One-Week Survey Period
by Region
|
REGION |
Number of Persons Served |
Percentage |
|---|---|---|
|
New York City |
7,524 |
70% |
|
Hudson Valley |
1,091 |
10% |
|
Long Island |
316 |
3% |
|
Central New York |
430 |
4% |
|
Western New York |
859 |
8% |
|
Other/Missing |
607 |
6% |
|
Total |
10,827 |
100% |
Persons with Histories of Chronic Substance Abuse
According to the New York State Office of Alcoholism and Substance Abuse Services (OASAS), many chemically dependent clients have the need for transitional and permanent housing as well as a variety of related supportive services during their progression through treatment and throughout their recovery. OASAS reports that in 2004, there were 56,354 admissions of homeless persons to treatment programs for chemical dependency, representing 18% of the total statewide admissions.
Increasingly, OASAS has focused on the integration of housing with treatment and supportive services, recognizing that this combination can significantly reduce the incidence of relapse and other crisis in peoples' lives, thus diminishing their need for emergency shelter, medical services, and other care. OASAS views supportive housing as a highly cost-effective means of promoting recovery and self-sufficiency. It has adopted a coordinated approach, built around the "three-legged stool" of housing, services, and employment in order to facilitate successful community reintegration by persons with multiple disabilities and special needs.
Persons Living with HIV/AIDS
The New York State Department of Health's Bureau of AIDS Epidemiology reports that, as of December 31, 2003, there were 64,217 persons living in New York State who were diagnosed with AIDS and a much larger, but unknown, number who were HIV positive. Research indicates that over 50% of all persons living with HIV/AIDS will require housing assistance at some point during their illness.
Among those diagnosed with AIDS, approximately 79% (50,489) live in New York City and about 21% (13,728) live elsewhere in the State.
New York City's HIV/AIDS Services Administration (HASA), currently provides housing assistance to approximately 20,000 persons living with HIV/AIDS and their families. According to a New York City HIV/AIDS Housing Needs Assessment funded by the New York City Department of Health and Mental Hygiene, Office of AIDS Policy, U.S. HUD/HOPWA, administered by the Postgraduate Center for Mental Health, an estimated 10,000 to 14,000 additional units of housing assistance will be needed in New York City by 2010 to meet the needs of persons living with HIV/AIDS.
Elsewhere in the State, the AIDS Institute estimates that there is a current need for 4,340 to 6,510 more subsidized and supportive housing units for persons with HIV/AIDS and an additional 6,000 to 9,000 units will be needed by 2010.
Victims of Domestic Violence
In 2003, the most recent year for which statistics are available, 13,439 New York State victims of domestic violence were sheltered in 142 residential programs licensed by the New York State Office of Children and Family Services. These programs have a total of 2,632 beds. In addition, 781 persons received transitional services, and over 37,000 received non-residential services. A total of 24,558 adults and children were denied residential services. Denial data does not take into account duplicate requests where a victim was denied admission to more than one residential program. The most frequently citied reasons for denials were: facility at capacity, unsafe location for family, lack of availability to meet the victim's special needs, and, outside of New York City, family too large. Providers report an increase in victims of domestic violence with more intensive service needs.
Homeless Youth
In 2003, 5,962 youth were admitted to emergency, short-term programs funded under the New York State Runaway and Homeless Youth Act (RHYA), which provides funding and oversight for programs for runaway and homeless youth. A total of 766 were admitted to longer-term transitional residential programs. Another 6,418 were admitted to non-residential short- and long-term services. The majority of the youth (44%) were served in New York City. In addition, over 70,000 calls were received across the State by runaway and homeless youth hotlines and nearly 70,000 contacts were made through runaway prevention and outreach programs.
Runaway and homeless youth programs reported that 5,951 youth sought services but were not served. Of those, 63% did not follow through, did not arrive at the shelter, or were not served for some other reason. A total of 12% were not served due to unavailable shelter space, 10% were too old to be eligible, 7% had mental health problems too severe for program admission, 3% were not served because they were abusing drugs, and another 3% were too young for admission. One percent were parents with children and ineligible.
Needs of Persons Threatened with Homelessness
It should also be noted that a significant number of at-risk households are living in doubled-up or tripled-up situations in order to keep a roof above their heads. This is not just an urban phenomenon; it exists in rural communities as well, particularly in places where there are no emergency shelters. There is no way to determine the exact number of households who are living in inappropriate, overcrowded conditions who are very unstably housed, but it is a problem in all regions of the State.
Other Special Needs
Section 91.305(d) Other Special Needs
"(1) The state shall estimate, to the extent practicable, the number of persons who are not homeless but require supportive housing, including the elderly, frail elderly, persons with disabilities (mental, physical, developmental), persons with alcohol or other drug addictions, persons with HIV/AIDS and their families, and any other categories the state may specify, and describe their supportive housing needs."
"(2) With respect to a state seeking assistance under the HOPWA program, the plan must identify the size and characteristics of the population with HIV/AIDS and their families within the area it will serve."
Overview
This section focuses on six populations, each of which, though not homeless, has special needs for housing with supportive services:
the elderly and frail elderly;
persons with severe mental illness;
persons with developmental disabilities;
persons with physical disabilities;
persons with addictions to alcohol or other drugs; and
persons and their families living with HIV/AIDS.
An estimate of the number of persons is presented below, followed by a description of each population's special housing and supportive services needs.
Elderly and Frail Elderly Persons
Estimate of number of elderly and frail elderly persons:
The New York State Office of Aging (NYSOFA) estimates there are approximately 2,300,447 non- institutionalized persons who are 65 years old or older living in New York State. Of that number, 940,680 (40%) are considered frail or disabled and 849,355 (36%) live alone. In New York City the percent of frail/disabled rises to 46% and the percent living alone to 40%.
A person is considered frail/disabled with one or more functional deficits in the following areas:
physical functions;
mental functions;
activities of daily living [ADL] (eating, bed/chair transfer, dressing, bathing, toileting and continence); and
Instrumental Activities of Daily Living [IADL] (meal preparation, housekeeping, shopping, medications, telephone, travel and money management).
Description of supportive housing needs of elderly and frail persons
As New York State continues its public policy shift in the provision of long term care services from institutional settings to both single-family and multi-unit housing environments, it becomes increasingly important that all housing options are able to accommodate the changing needs and preferences of older residents. An accommodating housing environment should address affordability, physical design features, safety and security, cultural congruence and facilitated access to needed amenities, socialization opportunities, services, and care.
Persons with Serious Mental Illness
Estimate of number of persons with serious mental illness
The New York State Office of Mental Health (OMH) estimates there are approximately 785,391 adults with serious mental illness living in New York State.
Adults diagnosed with serious mental illness are persons, ages18 or older, who currently meet the criteria for a Diagnostic and Statistical Manual of Mental Disorder IV mental illness diagnosis and experience substantial impairments in functioning due to the severity of their clinical condition. These adults currently experience substantial dysfunction in a number of areas of role performance or are dependent on substantial treatment, rehabilitation, and support services in order to control or maintain functional capacity. Furthermore, theyhave experienced substantial impairment in functioning due to mental illness for an extended duration on either a continuous or episodic basis.
Description of supportive housing needs of persons with serious mental illness
OMH presently funds residential placements for over 26,000 individuals in a variety of program modalities and 3,400 additional units are in development and scheduled to open within the next one to five years. Approximately one-half of these units are, and will be, in Supportive Housing programs for which OMH provides a rental stipend for units rented on the open market in conjunction with services that are available on a flexible, as-needed, basis.
Various studies have confirmed that access to decent affordable housing of one's choice is a critical component in treatment leading to the rehabilitation of persons who are seriously mentally ill. However, due to their disability and the stigma that accompanies mental illness, many of these individuals have extremely low-incomes. Although many are eligible for Supplemental Security Income (SSI), this benefit is usually not enough for these individuals to secure safe, decent and affordable housing in most areas of the State.
Housing resources are needed for persons graduating from community based residential programs, State psychiatric centers, forensic settings, young adults aging out of children's facilities and elderly persons. Section 8 vouchers have been used successfully for these populations, but are severely limited. With access to additional Section 8 and other federal housing resources, more persons would be able to secure safe, affordable housing in their communities. Such additional resources would shorten stays in the service intensive mental health residential system, enable those programs to serve other needy individuals and lengthen community tenure for persons discharged from such programs.
Persons with Physical Disabilities
Estimate of number of persons with physical disabilities
According to the 2000 U.S. Census, there are approximately 1,389,159 persons age 5 and over living in New York State who have a physical disability, defined as a long-lasting condition that substantially limits one or more basic physical activities, such as walking, climbing stairs, reaching, lifting or carrying. With an aging population and the likelihood of disability increasing with age, the number of people with disabilities can be expected to increase.
Description of supportive housing needs of persons with physical disabilities
While many people with physical disabilities require supportive housing, or homeless assistance services, there are many others with physical disabilities who do not require such services, but are nevertheless in need of decent, safe and affordable housing.
The Americans with Disabilities Act (ADA) of 1990 was created with the intent to increase employment for people with disabilities by making discriminatory practices illegal, U.S. Census survey data confirm that employment, while gradually increasing, continues to be a challenge for persons with disabilities, forcing them to live on limited incomes, while struggling to find affordable, decent and safe housing of their own choosing in the community.
According to Cornell University Rehabilitation Research and Training Center on Disability Demographics and Statistics, in the year 2004 an estimated 8.6% (plus or minus 0.6%) of civilian non-institutionalized, men and women, aged 18-64 in New York reported a work limitation. In other words, 1,028,000 out of 11,959,000 (or about one in 12) civilian non-institutionalized, men and women, aged 18-64 in New York reported a work limitation. In 2003, the median household income among civilian, non-institutionalized, men and women with a disability, aged 18-64 in New York was $23,800 (plus or minus $1,432), adjusted for inflation to 2002 dollars. People with disabilities are among the lowest income households in the State. They often must rely on Supplemental Social Security Income (SSI) benefits. People receiving SSI many times fall below the minimum income threshold to qualify for certain affordable housing opportunities, making the housing assistance provided under the guidance of the Consolidated Plan particularly important.
According to the Technical Assistance Collaborative, Inc. and the Consortium for Citizens with Disabilities Housing Task Force Report, entitled, "Opening Doors Priced Out in 2002: Housing Crisis Worsens for People with Disabilities," in 2002 SSI benefits in New York State were 17.5% of the median income for a one-person household. The gap between housing costs and income for people with disabilities, particularly when considered with rising rental housing costs, illustrates an important need for housing assistance.
The City of Buffalo, New York has been cited by the U.S. Census Bureau, Census 2000, as one of the ten places of 100,000 or more with the highest percentage of people with disabilities in the civilian non-institutionalized population five and over. The City of Buffalo is estimated to have 69,927 persons with disabilities, totaling 26.2% of the population.
There are many State-related planning initiatives that play an important role in expanding housing for people with disabilities. Foremost, New York State has encouraged over the last few years in particular, greater participation in the Consolidated Planning process by persons with disabilities. The New York State Independent Living Council, Inc. has taken an active role on the National Affordable Housing Act Task Force. In an effort to encourage participation by people with disabilities in the development of the Plan, greater citizen participation was sought, through live video teleconference public hearings held simultaneously on three occasions in four locations throughout the State.
In 1999, in the landmark case Olmstead v. L. C. (527 U.S. 581), the U.S. Supreme Court established a requirement that treatment for people with mental illness and/or mental retardation be provided in the least restrictive setting consistent with an individual's need. As a result, Governor Pataki signed Chapter 552 of the Laws of 2002 in which the Most Integrated Coordinating Council (MISCC) was statutorily created in New York State and has served as a useful tool in developing strategies to increase housing opportunities for people with disabilities living in institutional settings, who desire to live in a more integrated setting. [A more complete discussion of MISCC is provided under "Coordination" in the Strategic Plan section of this document.]
In response to the needs of persons with disabilities and to the efforts undertaken by MISCC, the State has taken steps to increase affordable, accessible housing opportunities in New York State. The Division of Housing and Community Renewal (DHCR) has modified its on-line Affordable Housing Directory (AHD) to include information on accessible/adaptable affordable housing units. When AHD information for a specific project is accessed by a user, information will be displayed identifying whether the project is subject to Section 504 of the Rehabilitation Act of 1973. If a project receives HOME financing, it is subject to Federal Section 504 requirements, which impose on project owners the obligation to make their buildings and facilities "readily accessible" to persons with disabilities and, additionally, requires the owner to bear the financial cost of physical modifications until at least 5% of all units in a newly constructed building are accessible to persons with physical disabilities and at least 2% are accessible to the sensory impaired.
Persons with Developmental Disabilities
Estimate of number of persons with developmental disabilities:
The New York State Office For People With Developmental Disabilities (OPWDD) estimates there are approximately 341,755 individuals with developmental disabilities living in New York State.
Description of supportive housing needs of persons with developmental disabilities
OPWDD and a network of private not-for-profit agencies provide support and services to more than 135,000 New Yorkers with developmental disabilities and their families. In 1998, Governor George E. Pataki announced NYS-CARES, a long-range plan for services that has enabled more than 9,100 people on the out-of-home waiting list to receive a residential placement, including nearly 5,000 beds in newly developed sites. Additionally, thousands of individuals with developmental disabilities have received day services, family support, at-home residential habilitation and service coordination opportunities. Chapter 353 of the Laws of 2004 extended this successful initiative for ten more years, subject to annual appropriations. Under NYS-CARES II, nearly 1,500 additional persons have received the residential opportunity of their choice. The program will provide residential opportunities to 1,500 more individuals by March 31, 2006.
Complementing the NYS-CARES programs, OPWDD has developed the New York State - Options for People Through Services (NYS-OPTS) initiative. Using an organized health care delivery system model authorized under Federal Medicaid law, NYS-OPTS will allow OPWDD and its not-for-profit partners to deliver new services with added flexibility and innovation, designed with and for the people who will receive these services. NYS-OPTS will provide the base for more effective and efficient use of resources by combining natural and existing supports with new services.
There is a large difference between the number of people who are projected to have developmental disabilities and the number who receive services. There are several reasons for this:
many people participate in supports or services in human services sectors other than developmental disabilities services;
some people lack access to information about developmental supports and services; and
some people are known to their primary health care providers but have not been, or choose not to be, referred to developmental services agencies and resources.
Meeting the housing needs of adults with developmental disabilities means offering a variety of housing opportunities, similar in nature to what is available for all people. OPWDD continues to maintain a commitment to traditional, certified housing opportunities while exploring self-directed alternatives that utilize a combination of approaches and maximize public and private resources. Both traditional and self-directed opportunities combine housing with supports and services designed to meet individual needs.
For some individuals and families, traditional certified residential programs are the housing option of choice. For a growing number of others, self-directed housing is the preferred approach. Through OPWDD's Home of Your Own (HOYO) program, supplemented in some instances with HOME Grant funds, numerous individuals with developmental disabilities have purchased their own homes. The HOYO program, which makes available low interest mortgages with reduced down payments through the State of New York Mortgage Agency, was planned, developed and implemented in partnership with families, advocates, not-for-profit and for profit agencies and a host of other community-based organizations. As a result of both traditional and self-directed housing, more people with developmental disabilities have the opportunity to live in the residential setting and community of their choice.
Persons with Alcohol or Other Drug Addictions
Estimate of number of persons with alcohol or other drug addictions
The New York State Office of Alcohol and Substance Abuse Services (OASAS) estimates that 1,841,000 New Yorkers have a chemical dependency problem and could benefit from treatment. OASAS estimates that about 557,000 persons will seek treatment for a chemical dependency problem.
In response to identified needs for housing and homeless services, OASAS has initiated various activities to support housing services within the State addiction treatment system. The long-term goal is to develop a full continuum of appropriate housing services models (emergency, transitional, permanent and support services) corresponding to the needs of all chemically dependent client populations during treatment and upon their discharge to the community.
Description of supportive housing needs of persons with alcohol or other drug addictions
Through the 2003 Local Services Planning process, OASAS conducted aHousing Services Survey, asking addiction treatment providers to assess the current availability and needs for housing services and assistance. Responses to the survey were analyzed to identify and prioritize the various needs for chemically dependent housing services across the State. Providers identified a significant need for supportive housing for patients. Fifty-eight percent identified a critical need for sober/drug-free housing and rental assistance in their communities.
During 2002, the Housing and Homeless Services Unit convened an internal OASAS Workgroup to consider existing regulations, policies, monitoring protocols and other support systems from the perspective of patient housing needs. Conclusions, recommendations and resources are included in an OASAS monograph, "Housing Services within the Addiction Treatment System." The report concludes that chemical dependency providers should strive to develop and institute an array of housing assistance services to help patients identify and secure appropriate housing, especially upon discharge from treatment.
The cornerstone of OASAS' homeless/housing services is the HUD Shelter Plus Care (S+C) program, which provides an excellent linkage between the chemically dependent treatment and housing systems. OASAS currently works with 29 not-profit-profit service providers to implement 49 projects across the State. OASAS provides administrative, fiscal and programmatic oversight of the program. The participating providers ("sponsors") own or lease the housing provided under the S+C program. Sponsors also provide substance abuse treatment and supportive services -- including outreach, case management, counseling, life skills and health-related services. Since 1993, over $60 million in HUD funding has been accessed by OASAS to support over 800 residential units that house over 2,000 clients and family members each year. The OASAS Shelter Plus Care program has been recognized as a national model and best practice consistent with the federal administration's priority to end chronic homelessness and prevent further homelessness among special need populations.
The ultimate goals of OASAS are to strengthen existing housing services for chemically dependent clients within local communities and to develop new, appropriate models for housing and addiction treatment services. To accomplish these goals, staff will work with addiction treatment providers and housing agencies as well as federal, state and local government representatives to broaden the range of housing options, funding options and support mechanisms.
Persons Living with HIV/AIDS and their Families
Estimate of number of persons living with HIV/AIDS and their families
The New York State Department of Health's Bureau of AIDS Epidemiology reports that, as of December 31, 2003, there were 64,217 persons living in New York State who were diagnosed with AIDS and a much larger, but unknown, number who were HIV positive. Research indicates that over 50% of all persons living with HIV/AIDS will require housing assistance at some point during their illness.
Among those diagnosed with AIDS, approximately 79% (50,489) live in New York City and about 21% (13,728) live elsewhere in the state.
Description of supportive housing needs of persons living with HIV/AIDS and their families
As of December 31, 2003, reports indicate that 64,217 were living with AIDS in New York State. Due to new medications used to treat AIDS, the death rate of those living with HIV/AIDS has declined dramatically. However, this fortunate turn of events has resulted in an increased need for housing resources. Most persons with HIV/AIDS are living on Supplemental Security Income (SSI) or receive public assistance while awaiting determination of SSI eligibility. They lack the income necessary to pay Fair Market Rents. In addition, many persons living with HIV/AIDS require supportive services, such as home health care, case management, substance abuse and mental health evaluation and treatment, transportation, childcare, and other services. Supportive housing programs offer the combination of housing and supportive services needed by persons living with HIV/AIDS to maintain their health and quality of life.
Recent HIV/AIDS housing needs assessments indicate a substantial unmet housing need for persons with HIV/AIDS and their families. In New York City, it is estimated that an additional 10,000 to 14,000 housing units for persons with HIV/AIDS and their families will be needed by 2010. Elsewhere in the State, it is estimated that an additional 6,000 to 9,000 housing units with supportive services will be needed by 2010, with a recommendation that most of these additional housing units be provided through use of rental subsidies.
Community Development Needs
Section 91.315(e) Non-Housing Community Development Needs
"(1) If the State seeks assistance under the Community Development Block Grant program, the consolidated plan must describe the State's priority non-housing community development needs that affect more than one unit of general local government and involve activities typically funded by the State under the CDBG program."
Overview
The State of New York is actively engaged in a variety of activities aimed at addressing non-housing community development needs statewide for the betterment of New York's communities. Through the funding and/or services provided by several New York State agencies, non-housing community development activities are undertaken at both the state and local levels of government. The Governor's Office of Small Cities, the New York State Environmental Facilities Corporation, the Developmental Disabilities Planning Council, the New York State Office for the Aging, the New York State Division of Parole, and the New York State Division of Criminal Justice are some of the state agencies that provide non-housing community development funding and/or services.
The Governor's Office for Small Cities
Utilizing CDBG Small Cities funds, the Governor's Office of Small Cities (GOSC) has played a vital role in addressing housing and non-housing community development needs in New York's smaller and rural communities. Based on the demand for Small Cities funding for non-housing community development activities, the GOSC has provided significant funding for activities such as public water, public sewer, public facilities and economic development.
The exhibit below illustrates the demand for CDBG Small Cities funds for non-housing community development activities for Program Year 2001-2005.
Exhibit 16
Small Cities Funding Requests and Awards
Non-housing Community Development Activities
2001 - 2005
|
CATEGORY |
REQUESTS |
AWARDS | ||
|---|---|---|---|---|
|
Amount |
Number |
Amount |
Number | |
|
TOTAL PUBLIC FACILITIES |
$126,529,460 |
327 |
$54,920,448 |
116 |
|
Water |
$60,807,579 |
156 |
$25,612,329 |
54 |
|
Sewer |
$32,990,074 |
86 |
$15,859,720 |
34 |
|
Community Facilities/Other |
$32,731,807 |
85 |
$13,448,399 |
28 |
|
ECONOMIC DEVELOPMENT- Micro-Enterprise Competitive Round |
$27,071,508 |
79 |
$16,169,129 |
38 |
|
ECONOMIC DEVELOPMENT- Open Round |
$74,540,683 |
160 |
$49,481,104 |
101 |
|
GRAND TOTAL |
$228,141,651 |
566 |
$120,570,681 |
255 |
HUD TABLE 2B
NON-HOUSING COMMUNITY
DEVELOPMENT PRIORITY NEEDS
|
Priority Needs |
Dollars to Address |
|---|---|
|
PUBLIC FACILITY NEEDS(projects) |
$19,283,408 |
|
Community Facilities/Other |
$19,283,408 |
|
INFRASTRUCTURE |
$52,325,604 |
|
Water |
$35,195,250 |
|
Sewer |
$17,130,354 |
|
ECONOMIC DEVELOPMENT |
$35,961,958 |
|
Economic Development Assistance |
$25,059,579 |
|
Micro-enterprise Assistance |
$10,902,379 |
|
TOTAL ESTIMATED DOLLARS NEEDED |
$107,570,970 |
As illustrated in Exhibit 16 (Small Cities Funding Requests and Awards) and HUD Table 2B (Non-housing Community Development Priority Needs) there is a significant unmet need for non-housing community development in New York's Small Cities eligible communities. The percentage of unmet need is greater than 57% for all activity types with the exception of economic development. The unmet need for economic development ranges between 35% and 45% for open round and micro-enterprise. The overall unmet need for Small Cities non-housing community development is 47%.
Other State Agencies
The GOSC consulted with New York State public agencies that provide funding and/or services that address non-housing community development needs. This consultation resulted in the identification of each agencies priority non-housing community development needs.
Environmental Facilities Corporation
The New York State Environmental Facilities Corporation (EFC) plays a major role in the progress of preserving and protecting our environment. The Environmental Facilities Corporation is a public benefit corporation that partners with communities statewide in carrying out important environmental infrastructure projects. The impact of the EFC is especially visible through its largest programs, the Clean Water State Revolving Fund and the Drinking Water State Revolving Fund (SRF's), which provide low-cost financing and technical assistance to both municipal and eligible private customers for environmental infrastructure projects that improve water quality.
The increasing demand for public funding for water and sewer projects propelled the New York State Clean Water and Drinking Water SRF Programs to reach almost $11 billion in total financing in State fiscal year 2003/2004. The Clean Water SRF, established in 1989, accounted for $9.94 billion of total funding and the Drinking Water SRF, established in 1996, accounted for the remaining $1 billion. Over the years the SRFs have enabled communities throughout the State to undertake 1,196 Clean Water projects and 402 Drinking water projects.
In the past State fiscal year alone, 2003/2004, the Clean Water SRF provided $935.6 million in financing to 90 recipients for 211 projects, while the Drinking Water SRF provided $216.4 million in low-cost financing and $25.8 million in grants to 58 recipients for 69 projects. In State fiscal year 2003/2004 the demand for low-cost Clean Water SRF financing was so great that a funding line had to be established. The funding will continue with the SRF funding period running from October 1, 2004 through September 30, 2005, and is expected to remain in place in the future.
Exhibit 17
NYSEFC CW/DWSRF Bond Issues
April 1, 2003-March 31, 2004
|
Purpose |
Amount |
|---|---|
|
Clean Water and Drinking Water SRF (NYC Municipal Water Finance Authority) |
$286,540,000 |
|
Clean Water and Drinking Water SRF (Pooled Financing Program) |
$131,770,000 |
|
Clean Water and Drinking Water SRF (Pooled Financing Program) |
$24,435,000 |
|
Clean Water and Drinking Water SRF (Pooled Financing Program) |
$19,680,000 |
|
Clean Water and Drinking Water SRF (NYC Municipal Water Finance Authority) |
$294,805,000 |
|
Clean Water and Drinking Water SRF (Pooled Financing Program) |
$66,655,000 |
|
TOTAL |
$823,885,000 |
Exhibit 18
Top 5 Recipients as a Percent of
Total Master Financing Indenture
Principal Outstanding
|
Recipient |
Principal |
Percentage |
|---|---|---|
|
Nassau County |
$176,603,930 |
9.2434% |
|
Westchester County |
$127,492,819 |
6.6729% |
|
NYC Municipal Water Finance Authority |
$116,050,000 |
6.0740% |
|
Suffolk County Water Authority |
$67,489,985 |
3.5324% |
|
Monroe County |
$44,302,000 |
2.3188% |
|
All Others |
$1,378,654,983 |
72.1585% |
|
TOTAL |
$1,910,593,717 |
100% |
Developmental Disabilities Planning Council (DDPC)
New York State, through the Developmental Disabilities Planning Council (DDPC), supports many service areas for individuals and families (including, personal assistance, day programs, recreation, technology and transportation) that are provided by State agencies. Over many years the Developmental Disabilities service system has successfully increased its emphasis on providing services in the community. More recently, efforts have been directed at improving capacity of generic community services providers to include individuals with developmental disabilities in existing programs.
Developmental Disabilities Planning Council programs that have significantly addressed community development needs include, the End of Life Care training initiative, the Partners in Policy Making Program and the Integrated Recreation project.
The End of Life Care training initiative assists all caregivers to plan for quality end of life care and this curriculum has been adapted as a national model by the Alzheimer's Association and Volunteers of America. The Partners in Policy Making Program is designed to provide information about disability issues and policies that will assist individuals with disabilities and their family members to develop skills to influence policy development at the local, state and federal levels. In 2002, a total of 39 individuals participated in this training and over the last decade over 1,000 individuals have received this training. The Integrated Recreation project increased the number of inclusive summer programs available for children with disabilities. In 2002, ten projects received $250,000 in DDPC grant funds to implement inclusive programs. Over 550 children with developmental disabilities were included with their non-disabled peers in recreation programs. More than 500 staff received training about developmental disabilities and approximately 60 community-based organizations improved their policies and practices for including children with developmental disabilities.
There is a continuing demand for the services provided through the Developmental Disabilities Planning Council. There has been a long-standing recognition that individuals with developmental disabilities and their families from ethnic or racial minorities are underserved. The extreme diversity of the population has compounded the difficulties. While there have been extensive efforts to rectify this situation, there is still a considerable amount of work to be done to improve the cultural sensitivity and responsiveness of the service system for these groups. Some other underserved groups that show a demand for the programs offered by the DDPC include children and adults with developmental disabilities requiring services from multiple service systems and children and adults who have both developmental disabilities and challenging behaviors. In addition, providing needed services to the developmentally disabled is sometimes made more difficult by geography. For example, some individuals in need of services live in very isolated, rural area where there are neither public transportation nor local service providers. The demand of the programs above as well as the unmet needs of underserved groups demonstrates future need for the Developmental Disabilities Planning Council program.
Office for the Aging
Throughout its 40-year history, the New York State Office for the Aging (SOFA) has been in the forefront of special initiatives for older people, and many of the concepts and programs which began in New York have been adopted nationally. SOFA advocates for over 3.2 million New Yorkers 60 and older. The Office advocates for older persons at all levels of government and the private sector with the cooperation of concerned organizations and older New Yorkers. The Office for the Aging administers a variety of State-funded programs which serve the elderly. In these programs preference is given to elderly people with the greatest economic or social need, with special emphasis on meeting the needs of low income minority elderly. The exhibit below demonstrates the demand for the programs offered through the Office for the Aging and future need.
Exhibit 19
New York State Office for the Aging
Demand for Services
|
Service |
Total Units |
Measured Units of Service |
|---|---|---|
|
Homemaking/Personal Care |
2,003,598 |
One Hour |
|
Housekeeping Chores |
497,263 |
One Hour |
|
Home Health Aide |
2,652 |
One Hour |
|
Home-delivered Meals |
11,677,600 |
One Eligible Meal |
|
Adult Day Services |
873,000 |
One Hour |
|
Case Management |
735,955 |
One Hour Including Travel Time |
|
Congregate Meals |
12,124,107 |
One Eligible Meal |
|
Nutritional Counseling |
14,873 |
One Hour Including Travel Time |
|
Escort |
71,133 |
Each One Way Trip |
|
Transportation |
2,408,146 |
Each One Way Trip Per Person |
|
Legal Assistance |
73,433 |
One Hour |
|
Information & Assistance |
2,343,465 |
One Contact |
|
Outreach |
116,546 |
Each Contact |
|
In-home Contact & Support |
520,910 |
One Contact |
|
Senior Center Recreation & Education |
404,775 |
One Group Session |
|
Health Promotion |
101,352 |
Each Scheduled Session |
|
Personal Emergency Response |
57,135 |
One Unit/Month or Part of Month |
|
Caregiver Services |
142,549 |
One Group or Individual Session |
|
Nutrition Education |
12,488 |
Each Group Presentation, Article, Handout or Radio/TV Presentation |
Division of Parole
The New York State Division of Parole addresses public safety needs by preparing inmates for release and supervising parolees to the successful completion of their sentence. New York State relies on the Division of Parole for services that are severely needed throughout our communities. Among parolees, 81% need drug abuse services, 54% need alcohol abuse service, and 46% need employment services. Sixty-one percent of parolees reside in the New York City region, 32% reside in upstate New York and 7% live on Long Island.
In an effort to serve the public safety needs of New York State, the Division of Parole has initiated many different programs aimed at assisting parolees. One such program is the Relapse Prevention Program. There are 22 relapse prevention programs under contract with the Division of Parole. The Division of Parole understands the need for a diverse drug treatment program spectrum that assists parolees to become and remain drug free and allows for the successful completion of parole. The Division has contracted for residential, outpatient and day treatment services statewide. There are currently 2,094 parolee service slots available.
Another program offered through the Division of Parole related to drug abuse is the High Impact Incarceration Program (HIP). The HIP diversion program is designed to provide parole violators who have substance abuse problems with opportunities to participate in substance abuse treatment and other programming as an alternative to prison. Only parole violators who are incarcerated on a parole warrant may participate in the HIP programs. The total number of parolee slots available through this program is 70.
The Division of Parole also contracts with the Center for Employment Opportunity (CEO) and has an MOU with the Department of Labor to provide employment services to parolees. There are over 1,200 slots available at the Center for Employment Opportunities in both the Neighborhood Work Program and the Vocational Development Program. The Department of Labor MOU offers employment assistance to over 1,900 parolees a year.
In an effort to address the diverse needs of the parolee population, the Division of Parole has also developed alternative programs in areas supporting housing development, alternatives to incarceration and female mentoring. With over 49,000 parolees under active supervision in New York State, the Division of Parole recognizes that there are many needs that still need to be addressed such as more employment, job training and job developmental services. Parolees generally have poor educational backgrounds and few, if any, work skills. Many parolees also lack an employment history. Often, after long period of incarceration, family ties and community connections are lost and family reunification programs, operating at a pre-release level, would allow inmates to mend some of the family ties and amend the bad behavior that often causes those ties to disappear. The management of sex offenders also poses a particular challenge to the Division. Case management services, such as employment services, housing advocacy, and sex offender treatment services are all needed on a statewide basis, and would help insure that these offenders are aggressively supervised and would also promote public safety in New York's communities.
Division of Criminal Justice Services
The New York State Division of Criminal Justice Services (DCJS) is a multi-function criminal justice support agency. DCJS is among the nation's leaders in developing criminal justice technologies, communication and information systems. Housed in the Division are the state's criminal history fingerprint files which are used to provide police departments and other authorized agencies throughout the state with the criminal records of arrested persons, and where authorized by statute, applicants for employment or licensure.
Among its other responsibilities are advising the Governor and the Director of Criminal Justice on programs to improve the effectiveness of New York's justice system. DCJS is also charged with collecting and analyzing statewide crime data; administering federal and state funds earmarked for criminal justice purposes; conducting research on critical criminal justice issues and providing training and legal guidance to the State's law enforcement and prosecution communities. In 1996, the Office of Forensic Services was established in the Division to oversee the accreditation of public forensic laboratories in the state and, with the Division of State Police, to establish and operate the state's DNA databank. DCJS is comprised of six program bureaus:
The Office of Justice Information Services;
The Office of Identification and Special Services;
The Office of Public Safety;
The Office of Strategic Planning;
The Office of Administration; and
The Office of Legal Services.
Several programs funded through DCJS address the needs of the criminal justice system throughout New York State. New York State supported 275 projects with $29.3 million in grants from the Edward Byrne Memorial State and Local Law Enforcement Assistance Programs during the July 1, 2003 to June 20, 2004 reporting period. These projects addressed drug and violent crime control goals in nine priority areas. These funds also supported prosecution and defense programs that handle cases involving major drug conspiracies, cold cases, family violence, child abuse and other special problems; school anti-violence programs incorporating multiple elements such as increased security and conflict resolution training; and drug and alcohol assessment and treatment services to ensure that parolees receive appropriate care and supervision.
Through State Aid funding DCJS allocated approximately $67,311,000 for prosecution, defense, crime labs, and drug diversion. These funds also supported the Westchester Policing Program, IMPACT, which aids in developing and implementing problem solving strategies, the Indigent Parolee Program, and also the NYPTI Program, which provides funds for continuing legal education, training and advice, and mutual assistance for prosecutors.
The Division of Criminal Justice Services also provide grants under VAWA funding, which support personnel, training, technical assistance, evaluation, data collection. And equipment costs to enhance the apprehension, prosecution, and adjudication of persons committing violent crimes against women and to provide or improve services for victims. DCJS also provides funding through the Motor Vehicle Theft and Insurance Fraud program as well as the Local Law Enforcement Block Grant.
In addition, with funding from the U. S. Justice Department's Transition from Prison to the Community Initiative (TPCI), DCJS administers a major grant to facilitate the reintegration of offenders into the community by developing and implementing methods to better prepare offenders before release and to better address their housing, employment and treatment needs after release. [More information on these activities is available in the Coordination section of the Strategic Plan under the heading "Interagency Offender Reentry Task Force".]
Lead-based Paint Hazards
Section 91.305(e) Lead-based Paint Hazards
"The plan must estimate the number of housing units within the state that are occupied by low-income or moderate income families that contain lead-based paint hazards, as defined by this part."
Overview
The U.S. Centers for Disease Control and Prevention (CDC) calls childhood lead poisoning "the most common environmental disease of young children". Lead-based paint is the principal source of lead in the home. Lead poisoning most often occurs when persons breathe lead contaminated paint dust or ingest lead contaminated paint chips. Young children are most at risk because they are more likely to chew on contaminated surfaces or ingest contaminated chips through hand-to-mouth activity. Among young children, the risks are even greater for those whose families are poor because they are more likely to live in older, more dilapidated housing where peeling and chipping lead-based paint may be within their reach.
In 1978, the U.S. Consumer Products Safety Commission banned the residential use of paint containing more than 0.06% lead. New York City acted earlier, banning lead-based paint in 1960. Many New York households continue to live in units where lead paint hazards exist.
Assessing New York's Lead-based Paint Hazard Control Needs
One method of assessing the extent of the hazards posed by lead-based paint is to consider both the age of the housing and the income of the household in order to estimate the portion of the housing stock which is both old and more likely to be poorly maintained.
Exhibit 20 presents the number of housing units, occupied housing units and units occupied by households below the federal poverty line cross tabulated with the age of those units. It also displays estimates of the number of units in each category which are likely to have lead-based paint hazards. The estimates are calculated using percentages appearing in a study recommended by HUD for this purpose.
Exhibit 20
New York State Housing Units
By Year of Construction
|
Year of Construction |
Total |
Occupied |
Units |
% of units Occupied by |
Estimated # of |
|---|---|---|---|---|---|
|
1980 - March 2000 |
1,119,586 |
1,010,121 |
118,184 |
0 |
0 |
|
1960 - 1979 |
1,986,718 |
1,835,782 |
251,423 |
62% |
155,883 |
|
1940 - 1959 |
2,174,766 |
2,021,983 |
286,932 |
80% |
229,546 |
|
1939 or Earlier |
2,398,237 |
2,188,974 |
333,072 |
90% |
299,765 |
|
Totals |
7,679,307 |
7,056,860 |
989,611 |
63% |
685,193 |
Exhibit 20 indicates that an estimated 685,193 households in New York State have poverty level incomes and live in units constructed before 1980 where lead-based paint hazards present.
To further refine this analysis, Exhibit 21, which is derived from HUD's CHAS Data Book, cross-tabulates households with young children by income category and date of construction in order to estimate extent to which young children are present in lower-income households where lead hazards are most likely to exist.
Exhibit 21
New York State Households
By Tenure, Year of Construction, Income Category
and Presence of Children Under Age 6
|
Year of Construction |
Income |
HHs with children under age 6 |
Total HHs | ||
|---|---|---|---|---|---|
|
Owners |
Renter HHs |
Total HHs | |||
|
1980 - 2000 |
= 50% |
12,530 |
34,315 |
46,845 |
227,480 |
|
> 50% |
131,805 |
39,915 |
171,720 |
782,635 | |
|
1960 - 1979 |
= 50% |
16,665 |
83,545 |
100,210 |
492,365 |
|
> 50% |
135,840 |
88,855 |
224,695 |
1,343,415 | |
|
1950 - 1959 |
= 50% |
10,275 |
49,405 |
59,680 |
306,260 |
|
> 50% |
96,040 |
52,870 |
148,810 |
873,835 | |
|
1949 or Earlier |
= 50% |
25,280 |
138,240 |
163,520 |
876,085 |
|
> 50% |
199,405 |
146,705 |
346,110 |
2,154,780 | |
|
Totals |
627,840 |
633,850 |
1,261,690 |
7,056,855 | |
Exhibit 21 indicates that:
323,410 New York households are in the highest risk category (shaded boxes above) because these households:
include one or more children under age 6;
have incomes at or below 50% of area median income; and
live in units constructed before 1980.
Among owners with children under age 6:
77% (483,505 of 627,840) live in units built before 1980 and, of these,
11% (52,220 of 483,505) have incomes at or below 50% of the area median.
Among renters with children under age 6:
95% (599,620 of 633,850) live in units built before 1980 and, of these,
45% (271,190 of 599,620) have incomes at or below 50% of the area median.
Last updated on 03/09/06