Vermont advocates and policymakers faced a challenging 2013 legislative session against the backdrop of record homelessness in the state and a further increase expected due to sequestration. At the center of debate was the state’s reliance on hotels for emergency housing and attempts to scale back the program to reduce costs and abuse. The Vermont Affordable Housing Coalition (VAHC), an NLIHC State Coalition Partner, was a leading voice in the effort to revise proposed program regulations that would have dramatically excluded emergency housing participants by imposing a point system to determine eligibility. Advocates say the regulations need more revisions to prevent a further increase in unsheltered families.
In its revised 10-year plan to end homelessness, the Vermont Council on Homelessness recommended that the state reduce its reliance on motels and hotels for emergency temporary housing for people who are homeless (see Memo, 1/25/2013). Used when shelters are full, the program provides housing for 11% of Vermont’s homeless population, but advocates and state officials have scrutinized it for soaring costs and concerns about recipient abuse. In 2009, the Department for Children and Families (DCF) expanded program access to vulnerable homeless individuals and families with children, the latter for up to 84 days. Previously, eligibility had been restricted to those displaced by such catastrophic situations as flood, fire, domestic violence or eviction due to circumstances beyond their control. At advocates’ urging, Governor Peter Shumlin (D) allowed for access to emergency housing during severe cold weather. The economic recession was another factor as individuals spent time in shelters and motels because they could not obtain affordable, safe housing. Taken together, these factors caused program participants and cost to nearly triple from 2009 to 2013; participation rose from 1,100 to 3,100 individuals and costs rose from $1.4 million to $4 million.
Legislation was introduced in February 2012 to slash program funding by more than half and eliminate the program entirely by July 2015. The savings would be used for transitional housing with wraparound services, improved case management for homeless individuals, and homeless prevention programs. Advocates agreed that the program does not prevent homelessness, but believed it serves as an essential intervention for crisis situations. Rapidly eliminating emergency services without significantly investing in rental vouchers, coordinated case management, and affordable housing development would only exacerbate the homelessness crisis.
The legislature cut the program to $1.5 million in its FY 14 appropriations bill and directed DCF to impose new eligibility rules. A vulnerability point system was initially established to determine eligibility; it required an individual or family to meet at least six points to qualify for a motel voucher. For example, a homeless, pregnant, and disabled veteran in her third trimester, who applied for Social Security benefits and enrolled the state’s Temporary Assistance for Needy Families program, would accrue only five points; she would reach the eligibility threshold once she gave birth or received Social Security. Families with children six years or younger would get three points, while those with children seven years or older would get two. Advocates and the public were alarmed with the point system, arguing that it was far too restrictive.
After hearing from advocates, Governor Shumlin interceded and DCF agreed to hold meetings to address their concerns. Advocates urged the department to adopt the legislature’s four categorical eligibility criteria included in its definition of vulnerable households: households with a person 65 years of age or older; a person receiving SSI or SSDI; a household member under age 6; or a woman in her third trimester of pregnancy.
Reflecting these concerns, DCF included the categorical eligibility criteria and a modified point system in its recommendations to the Legislative Committee on Administrative Rules. The committee approved interim rules that provide for emergency and temporary housing in catastrophic situations, for vulnerable, under cold weather restrictions. Program eligibility is restricted to 28 days for those who are vulnerable, and 84 days for those in catastrophic situations. It also approved a rule change that would continue to require that program participants spend 50% of their income on shelter. Advocates opposed this provision and are working to eliminate it in the final rules. DCF is required to engage stakeholders in the program’s design, implementation, and evaluation.
“We appreciate that Governor Shumlin, legislators and state officials listened to our concerns. There are still problems with the new rules, but the changes they made are significant and will help ensure that fewer vulnerable Vermonters are left out in the cold without shelter this winter,” said VAHC Coordinator Erhard Mahnke. “We look forward to working with all involved to increase access to permanently affordable housing and services for the homeless and reduce reliance on band-aid solutions like motels.”
VAHC worked on the emergency housing program regulations throughout the summer; it plans to incorporate additional efforts in its 2014 policy agenda.
For more information, contact Erhard Mahnke, [email protected]