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New York City Council
Oversight - Housing Instability Among LGBTQ+ Individuals in NYC
Read summaries and jump into the video at the segment start.
Council staff welcomes attendees to the joint hearing of the Committees on Women and Gender Equity and General Welfare, asks attendees to silence devices and not approach the dais.
Chair Farías introduces the hearing on LGBTQ+ housing instability, connecting Pride Month to the Stonewall riots and the origins of the LGBTQ+ liberation movement among housing-insecure people.
Farías details how nearly half of NYC's homeless youth identify as LGBTQ+, elders face discrimination in assisted living, and shelter staff often fail to honor gender identity in placements.
Farías frames NYC as a progressive leader with the largest LGBTQ+ metro population, outlines questions for the administration on housing resources and shelter staff training, and invites Chair Hudson to speak.
Chair Hudson introduces herself, thanks Chair Farías for allyship, and acknowledges council members Avilés, Ung, Morano, Wilson, and El DeBall in attendance.
Hudson cites statistics showing 55% of LGBTQ+ youth and 67% of transgender clients were forced out or ran away due to identity, and 70% of trans respondents in shelters reported mistreatment.
Hudson calls for policies addressing systemic inequities, not just awareness, and thanks committee staff including Aminta Kilowan, Penina Rosenberg, Justin Campos, and others for their work on the hearing.
Farías thanks committee staff, reminds witnesses to fill out witness slips, limits testimony to two minutes, notes no voting today, and states in-person witnesses testify before Zoom participants.
Council staff administers the affirmation to all witnesses, who affirm to tell the truth and respond honestly to council member questions.
Taylor Brown, inaugural director of the Mayor's Office of LGBTQIA Affairs, introduces the office's mission to address systemic barriers preventing LGBTQIA New Yorkers from thriving, with housing as foundational to well-being.
Brown describes how transgender, nonbinary, youth, older, disabled, and LGBTQI people of color face disparate barriers to housing, driven by intersecting inequities rather than a single factor.
Brown traces how longstanding legal and social discrimination against LGBTQIA people resulted in disparate rates of poverty, unemployment, health care barriers, and criminalization that compound housing insecurity.
Brown describes surging affordability crises, stagnant wages, and housing market failures, compounded by the Trump administration's weaponization of federal government to roll back LGBTQIA legal protections.
Brown outlines the office's phased approach: agency-wide regulatory and policy audits, programmatic evaluations, stakeholder convenings, and executive-level strategy to eliminate disparities through interagency coordination.
Brown concludes by affirming the office's expertise, vision, and dedication, and pledges the Mamdani administration's readiness to partner with City Council on addressing LGBTQIA housing instability.
DSS Commissioner Erin Dalton introduces joined officials and describes DSS's commitment to culturally competent services, recognizing unique experiences of LGBTQIA and TGNC communities seeking assistance.
Dalton details DSS's mandatory LGBTQIA inclusion training for all staff within 90 days of hire, biennial refreshers, and specialized placement procedure training for TGNC clients.
Dalton acknowledges that voluntary gender identity and sexual orientation surveys at intake yield low participation, resulting in significant undercounting of LGBTQIA and TGNC clients across DSS systems.
Dalton describes LGBTQIA-affirming requirements at all DHS sites, plus specialized shelters including ACE's Place (150 TGNC beds), Marsha's House (80 LGBTQIA beds), and 42 additional TGNC beds across four boroughs.
Dalton outlines domestic violence shelter services for LGBTQIA survivors, including a contract with the LGBT Center for non-residential counseling, case management, and advocacy without requiring shelter entry.
Dalton highlights the forthcoming TGNC advisory group of 6-8 clients with homelessness experience, and the Shelter Accessibility Board's recommendations including safety escorts and transportation considerations for TGNC clients.
Dalton describes DSS community outreach connecting LGBTQIA individuals to resources through organizations like Ali Forney and Bronx Legal Services, and concludes by affirming the Mamdani administration's commitment to LGBTQIA dignity.
DYCD Associate Commissioner Wanda Ascherl introduces the agency's runaway and homeless youth services, noting LGBTQ+ youth face disproportionate risks of housing instability, exploitation, and adverse health outcomes.
Ascherl details DYCD's 863 residential beds for youth ages 16-24, including 160 beds for young adults 21-24, with 100 new beds added this fiscal year under Chair Stevens's leadership.
Ascherl describes eight drop-in centers with 24/7 borough coverage offering food, clothing, counseling, and referrals, plus street outreach teams engaging youth at known congregation sites six days per week.
Ascherl outlines individualized service plans, family reunification support, and professional development for providers on gender-affirming interactions, highlighting mission-oriented organizations like Ali Forney Center.
Farías asks Brown about specific housing supports, budgetary needs, interagency coordination with DSS and DYCD, and whether the office will offer LGBTQ+ trainings. Brown says planning is ongoing, budget negotiations continue with OMB, and trainings will be assessed against existing offerings.
Farías asks about maintaining the Unity Project's housing resource guide, community outreach campaigns, and the office's budget allocation. Brown commits to keeping the guide updated, notes no active outreach campaigns yet, and describes inherited funding including a $400,000 DOHMH allocation.
Farías asks how many LGBTQ youth are served and what percentage they represent. Ascherl reports 700 LGBTQIA+ youth in residential programs and 564 at drop-in centers, comprising 38% of program enrollees and 42% of drop-in center participants.
Farías asks how DYCD ensures LGBTQ youth know about services. Ascherl describes word-of-mouth referrals, social media presence, Discover DYCD, palm cards, and street outreach vans as key outreach channels.
Farías asks how outreach teams determine where to go. Tracy Thorne explains Streetworks operates north and south vans, with weekly locations based on field observations and drop-in center feedback, covering parks, subways, and other youth congregation sites.
Farías asks about long-term housing outcomes for LGBTQ youth. Ascherl reports 15% returned home, 20% found other residences, 12% transitioned to independent living, and 42% received crisis or supportive services, with five-year trend data to follow up.
Farías asks whether DYCD tracks youth after placement to ensure stability beyond couch-surfing. Ascherl describes continuous counseling and support connections, though specific post-placement duration tracking is not detailed.
Farías asks what family reunification programs look like and whether they're proactive. Ascherl and Thorne explain services are youth-driven, with providers offering counseling and support to both youth and families when reunification is desired.
Farías asks whether DYCD hears reasons for family rejection and uses that to shape services, citing machismo and patriarchal systems. Thorne confirms family rejection is a top reason youth seek services and that support is case-by-case and youth-driven.
Farías asks how DYCD ensures LGBTQ+ youth referred to DHS are placed in gender-affirming shelters. Thorne describes close coordination with DHS intake staff and successful placements at Marsha's House, ACE's Place, and other affirming sites.
Farías asks about entry pathway breakdowns and why 36% of 592 unplaced youth identified as LGBTQ. Thorne cites lack of bed availability as the primary reason for non-placement and promises to follow up on pathway data.
Hudson asks who provides family mediation and reunification services. Ascherl confirms providers deliver services directly, naming Ali Forney Center and Rising Ground among them.
Hudson asks how DSS coordinates with other agencies. Dalton describes collaboration with HPD, NYCHA, and aging services, noting good advocacy from mayoral agencies to ensure LGBTQ+ clients access needed resources.
Hudson asks about intake for LGBTQ+ veterans seeking shelter. Sonia Russell describes the intake process including voluntary gender ID screening, self-identification options, and accommodations for both veteran and TGNC status.
Hudson asks about shelter placement for LGBTQ+ older adults. Russell describes shelters for 55+ and 60+ populations, voluntary gender ID screening, and reasonable accommodation processes for mobility and accessibility needs.
Hudson presses on how proactively staff offer the gender identity screener, comparing it to accessibility accommodations. Russell confirms all clients are asked to complete the screener and for preferred names, with transfers available if identity is disclosed later.
Hudson asks what training street outreach workers receive for engaging LGBTQ+ individuals. Dalton describes mandatory LGBTQIA+ training within 90 days and biennial refreshers, plus specialized TGNC placement training, and emphasizes the need for individualized solutions.
Farías asks about tracking incidents. Dalton provides FY26 data through June 16: 61 gender discrimination reports, 24 TGNC discrimination, 5 TGNC harassment, and 2 TGNC retaliation across DHS and HRA, totaling 92 reports via the IQ system.
Dalton provides FY25 data: 57 gender discrimination, 7 TGNC discrimination, 5 TGNC harassment, 6 TGNC retaliation. Farías asks about standard responses; Dalton describes investigations, corrective action plans, and shelter-specific interventions.
Farías asks how many dedicated TGNC beds exist. Dalton reports 192 beds across four boroughs: 21 in Bronx, 5 in Brooklyn, 159 in Queens, and 7 in Manhattan, with no beds in Staten Island.
Farías asks about the Lopez v. DHS settlement requiring TGNC shelter units in every borough and anti-retaliation protections. Dalton describes staff training, nondiscrimination agreements, complaint tracking categories, and enhanced reporting at ACE's Place including QR codes and paper forms on every floor.
Council Member Wilson asks about housing for LGBTQ+ seniors, citing 2017 data showing high poverty and substandard housing rates. Dalton and Russell describe 55+ and 65+ shelters with partnerships to senior service organizations, and Dalton commits to working with the aging commissioner.
Wilson asks about updating Ryan White and HOPWA programs. John Rojas describes federal modernization changes to funding formulas, the HASA representative on the Ryan White Planning Council, and ongoing monitoring of federal budget developments.
Wilson asks about one-time cash payment programs to prevent youth homelessness. Thorne describes pilots including the Trust Youth Initiative with Ali Forney Center and Point Source Youth. Brown adds that direct assistance and wraparound services are needed, requiring sustained investment.
Farías asks about increased oversight for LGBTQ+ shelter residents. Russell describes proactive measures including Code of Conduct mandates, required trainings, and reactive measures including data review, provider conversations, transfers, and on-site visits. Farías emphasizes staff should be moved before residents when complaints involve staff.
Farías asks how DSS addresses unique LGBTQ+ needs. Dalton highlights the DSS Office of LGBTQIA+ Affairs as an independent community-facing resource and the forthcoming TGNC advisory committee launching in fall 2026.
Public Advocate Williams delivers opening remarks highlighting that LGBTQ+ youth are 40% of unhoused youth, face high rates of violence and suicide, and that black trans women are disproportionately impacted. He calls for more affordable housing, lifts up organizations like Ali Forney and SAGE, and memorializes the late Lou Fiddler's advocacy on this issue.
Farías confirms staff training is every two years and asks about ACE's Place occupancy. Dalton reports 109 residents as of last week and clarifies ACE's Place opened in 2025, with 150 total beds.
Dalton explains ACE's Place referrals occur through intake gender identity screening and later self-identification. Farías briefly asks DYCD whether the 40,000 youth served annually are unique or duplicated; Thorne confirms counts include outreach contacts and are duplicated.
Farías raises reports of subpar conditions and harassment at ACE's Place. Dalton describes facility issues from burst pipes during code blue that were addressed, investigated harassment complaints resulting in additional staff training, and notes the shelter was physically nice during her visit. Brown flags ongoing litigation and plans to visit ACE's Place and other TGNC sites.
Hudson cites LL95 data showing only 478 LGBTQ+ individuals in DHS shelters (1% of 50,000), compared to 40% at DYCD. Dalton attributes the gap to voluntary, anonymous survey administration at intake. Russell explains LL95 counts those in TGNC beds, ACE's Place, Marsha's House, or self-identified TGNC clients.
Farías asks how DSS assesses training effectiveness. Russell acknowledges the agency tracks who completes trainings but does not currently have post-training assessment measures. Farías encourages implementing such evaluations.
Farías urges agencies to be more direct in encouraging self-identification to enable early prevention, emphasizing that bureaucracy centers on data aggregation. Dalton agrees to partner on better data approaches. Brown raises the need to examine state and city privacy laws to protect LGBTQ+ data from federal hostile use.
Council Member Brewer asks about pathways for undocumented LGBTQ+ youth aging out of services. Thorne describes expanded 21-24 beds and the state Housing Access Voucher Program open to undocumented individuals. Dalton adds the SHARE rental assistance program, and Brown describes inherited work on resources for migrant LGBTQIA New Yorkers under Local Law 73.
Hudson asks what percent of HASA clients identify as LGBTQ+. John Rojas reports DSS does not collect sexual orientation data but does collect transgender/non-binary data, with about 5% (approximately 1,800 clients) identifying as TGNC.
Hudson asks about contingency plans if HOPWA or Ryan White funding is eliminated. Rojas confirms ongoing monitoring of federal budget developments, conversations with OMB, and advocacy to maintain services should funding be discontinued.
Hudson asks about Local Law 130 reporting. Rima Rivera reports CY2024 data: 16,318 total survey respondents with 16% identifying as LGBTQI+, including 25% of 114 DVS respondents, 16% of 8,906 cash assistance respondents, 18% of 915 IDNYC respondents, and 15% of 6,383 SNAP respondents.
Hudson asks how personal information is protected and whether respondents express concerns. Rivera confirms data is voluntary, confidential, and anonymous, and says she is not aware of any elevated concerns about the survey.
Hudson notes HRA reported zero LGBTQ+ complaints in CY2022 and asks about general complaint numbers. Rivera explains DV shelters are regulated by OCFS, which receives complaints directly, and HRA is not privy to them without client consent.
Hudson asks whether low complaints reflect no concerns or reluctance to self-identify. Rivera acknowledges the importance of building trust before asking for disclosure, suggesting information be collected after initial crisis subsides, and emphasizes improving how questions are asked.
Hudson thanks the administration witnesses, encourages continued proactive assessment and addressing of LGBTQ+ needs in the shelter system, and notes the strong interagency collaboration demonstrated during the hearing.
Farías thanks the administration panel, transitions to public testimony, and reminds attendees of decorum rules, two-minute testimony limits, and procedures for submitting written testimony within 72 hours.
Alex Guevara, a queer and trans youth advocate, shares their experience of family rejection leading to RHY services, sleeping in drop-in center chairs, and being dead-named at Marsha's House. They credit city-funded new beds at AFC for reducing their wait time and call for vouchers and LGBTQ-affirming staff.
Chetanya Gunrathi of the NYC Youth Action Board testifies about disproportionate LGBTQ+ youth homelessness (40% of unhoused youth), challenges for LGBTQ+ immigrant youth, and urges expanding housing options and establishing a $15 million LGBTQIA+ immigration fund.
Nedeleyn Helena Diaz, co-chair of the NYC Youth Action Board and outreach specialist with Housing Works, cites Trevor Project data showing 28% of LGBTQ+ youth experience housing instability, with 40% kicked out due to identity. She supports the $15M LGBTQ+ immigration fund and $10M for persons in the sex trade.
Brian Ellicott-Cook of SAGE testifies that 40% of LGBTQ+ older adults live below poverty, older adult homelessness has surged 250% since 2004, and affirming housing supply remains extremely limited. He warns HUD proposals threaten progress and recommends safety signals for self-identification.
Nadia Swanson reports 400 youth on AFC's wait list (up from 300 last year, under 100 when vouchers existed), 25 deaths since 2020, and a funding structure where DYCD pays $50K per bed against $80K real cost. She demands raising bed rates, restoring vouchers, and baselining $5M in speaker initiative funding.
Ava Jacru, a case manager at a DHS Safe Haven, testifies that IDNYC requires photo ID to obtain photo ID, creating an impossible barrier for homeless clients. She proposes adding DHS to the caretaker voucher list so case managers can verify identity, unblocking housing applications for thousands.
Ethan Lowe of the Legal Aid Society recommends expanding affirming shelter capacity across all boroughs, increasing awareness of existing TGNC placement rights, and expanding DSS LGBTQ Affairs capacity, noting clients still face problems even in designated affirming shelters due to insufficient staff training.
A council member asks Swanson to elaborate on capacity issues. She details 2,000 youth served annually, 212 beds, 400 on the wait list today versus under 100 when vouchers existed, and explains the bottleneck: youth can't move out because there's nowhere to go, while bed rates are too low for providers to expand.
Timothy Pena, a Navy veteran and former Borden Avenue Veterans Residence resident, testifies about 1,365 emergency calls in 16 months (one every nine hours), safety concerns, and witnessing veteran overdoses. He raises these issues at this hearing because other committees have not taken his allegations seriously.
Dr. Henry Love shares personal stories of losing his best friend Cordell and partner Devon to housing instability-related deaths, both before age 30. He describes how housing instability raises suicide attempts 3.7 times and disrupts HIV treatment for the 20% of homeless youth living with HIV.
Love describes the TAP program, which provides approximately $3,700 in direct cash to youth within 48 hours, with 98% of recipients having no shelter contact in six months per Johns Hopkins evaluation. He urges the council to fund the $4.7M city council request for TAP.
David Miranda of Manhattan Legal Services describes a client who waited five years for a HASA voucher because nobody told her the rent was too low, forcing her and her autistic daughter into shelters. He calls for fixing administrative delays and transparency failures within HASA.
Miranda highlights the foster care-to-homelessness pipeline for LGBTQ+ youth, with over one-third of foster youth identifying as LGBTQ+. He also argues that NYC's data collection misses hidden homelessness, including couch surfing and informal arrangements, requiring street-level outreach to capture.
Mateo Guerrero shares three stories: a trans migrant couple assaulted at a shelter where staff called police instead of de-escalating; a trans elder who believed HIV infection was her only housing pathway; and a queer migrant illegally locked out by their landlord with police assistance at the 102nd precinct.
Guerrero urges the council to pressure the Mamdani administration to end the lawsuit against CityFHEPS expansion, expand the Housing Access Voucher Program beyond 900 vouchers, and support the NYC Trans and Queer Coalition's budget demands including $15M for gender-affirming care and $10M for trans equity.
Atzamal Tone describes Project Renewal's Marsha's House, NYC's first LGBTQ+ shelter for adults 18-35, offering 81 beds with primary care, mental health, and job readiness programs. In FY26, 28 residents were placed into permanent housing. Tone urges continued investment in LGBTQ+-designed shelter models.
Erica Lorish-Baugh of Interact Advocates for Intersex Youth testifies that intersex people report housing discrimination at more than triple the rate of non-intersex people, are four times more likely to need housing assistance, and urges passage of Intro 131 to make anti-discrimination protections for intersex people explicit in city human rights law.
Chair Hudson calls on two additional virtual witnesses who do not respond, then closes the public testimony portion and adjourns the hearing.