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New York City Council
Oversight - Evaluating New York City’s Runaway and Homeless Youth Shelter System
Read summaries and jump into the video at the segment start.
Council staff welcomes attendees to the Committee on Children and Youth hearing, reminds everyone to silence devices, and instructs those wishing to testify to fill out witness slips.
Chair Althea Stevens opens by praising DYCD for the massive after-school program expansion, acknowledging the difficulty of launching new programs at scale from her own 15 years of experience running after-school programs.
Chair Stevens introduces the oversight hearing on the runaway and homeless youth shelter system, describing DYCD's crisis shelters, transitional independent living programs, street outreach teams, and 24/7 drop-in centers across the five boroughs.
Stevens highlights that 319 young people were turned away from shelter between January and June, raises concerns about underfunding, capacity gaps, and the need for mental health, employment, and housing navigation support beyond just beds and meals.
Stevens thanks committee staff including Elizabeth Arts and Rie Okasawal, her District 16 office team, and acknowledges Councilmember Felder joining the hearing before turning to staff to swear in the administration panel.
Sandra Escamilla-Davies of DYCD shares a personal story about finding her uncle living on the streets with HIV and crack addiction, which shaped her commitment to social work and building ecosystems that prevent disconnection and create pathways back for young people.
Escamilla-Davies details DYCD's residential services: 913 total beds serving ages 16-24, including 160 beds for homeless young adults 21-24, with 100 new beds added through council partnership (70 currently serving, 20 opening soon, 10 still being sited).
Escamilla-Davies describes DYCD's eight drop-in centers offering food, clothing, counseling, and health workshops with at least one 24/7 center per borough, plus street outreach teams that meet young people where they congregate to provide immediate support and connections to housing.
Escamilla-Davies explains individualized case management, mental health services, and LGBTQ+ affirming environments across RHY programs, noting the Ali Fournay Center's expertise in serving LGBTQ+ youth who are disproportionately represented among homeless youth.
Escamilla-Davies describes how counselors develop individualized service plans with short and long-term goals, connecting youth to health services, education, career development, substance use prevention, and family reunification, with the ultimate goal of leaving youth more connected than when they entered the system.
Stevens presses DYCD on why no new RFP has been issued since 2018, with the system operating under contract extensions through June 2027. Escamilla-Davies acknowledges the 2018 RFP gap and says she is working with OMB and the deputy mayor on stabilization before procurement.
Stevens asks about a 2022 $15 million federal grant and a concept paper that would have increased provider reimbursement rates but was tabled by OMB. Susan Haskell clarifies the grant was HUD's Youth Homelessness Demonstration Program funding street outreach, rapid rehousing, and permanent housing services, not a concept paper for an RFP.
Stevens asks what steps DYCD is taking to ensure the RFP is released before current extensions expire. Escamilla-Davies explains DYCD is conducting needs assessments, utilization analysis, and cost evaluations across all programs, proposing a larger strategy RFP rather than single-program procurements.
Stevens asks for a timeline on DYCD's evaluation and whether a continuous assessment policy will be implemented. Escamilla-Davies says financial analysis is underway, with program-specific analysis in 2-3 months and utilization/needs assessment within a year, activating the Interagency Coordinating Council to align outcomes across agencies.
Stevens questions whether current per-bed rates of $47,000-$55,000 are adequate, noting providers say they need around $70,000. Haskell acknowledges costs have risen since 2018 and providers struggle to deliver full services within contract constraints, saying DYCD is open to revisiting investment levels.
Stevens pushes on provider feedback about inadequate rates and the interconnected nature of DYCD contracts, noting providers hold multiple contracts and underfunding in one area affects others. Escamilla-Davies acknowledges the unevenness has created instability and says DYCD is evaluating all portfolios in tandem to move the needle evenly.
Stevens raises that after a 2017 Legal Aid settlement expired in 2023, minors turned away from RHY shelters increased by 3,000%. Tracy Thorne disputes the number, saying DYCD does not turn away minors and has a minor policy, with 316 youth turned away this quarter (down from 599 prior quarter), but those are not all minors.
Stevens asks what DYCD is doing to ensure 16-17 year olds can access beds. Thorne explains the minor policy requires working with minors, contacting ACS and parents, and not turning them away without engagement. Stevens requests the full policy language be shared with the committee.
Stevens asks how many youth were referred to DHS shelters instead of RHY beds. Thorne explains the shelter access report doesn't capture this, but the streamlined report shows 121 youth placed directly into DHS shelters in FY2025 and 55 since June in FY2026, allowing youth to skip DHS intake.
Stevens asks how DYCD is responding to capacity challenges and reducing waitlists. Escamilla-Davies provides context on system growth, COVID-era utilization drops, and the migrant surge that drove up shelter access reports, saying numbers are now trending down as capacity expands.
Stevens asks about long-term strategy for ensuring adequate beds. Escamilla-Davies says DYCD monitors and responds to changing needs, while Haskell emphasizes the agency's investment in this population across a continuum of care, not on the margins.
Stevens raises that Staten Island has no RHY crisis shelter. Thorne explains a provider chose to convert their crisis shelter to a TIL program, now offering 41 TIL beds plus a 24/7 drop-in center, with 10 additional HYA beds being sited. Escamilla-Davies notes the TIL model actually benefits Staten Island youth by allowing longer stays locally.
Stevens notes only 5% of crisis exits and 15% of TIL exits went to permanent housing in FY2025, asking about average TIL length of stay. Escamilla-Davies says the typical stay is 257 days, with housing navigators pursuing supportive housing, rapid rehousing, vouchers, and NYCHA options, though not all youth are developmentally ready for a lease.
Stevens questions why TIL programs have a 24-month maximum stay and what happens when youth can't find housing. Thorne explains it's an OCFS state regulation, and providers can exit and re-enroll youth under the age limit. Stevens calls the process senseless and asks if DYCD is pushing OCFS to change it; Thorne confirms ongoing discussions.
Stevens asks about the 18% of crisis exits and 9% of TIL exits with unknown destinations, and what discharge planning is required. Escamilla-Davies says follow-up is required but voluntary participation and youth mobility make tracking difficult, with many youth staying connected to drop-in centers after leaving residential programs.
Stevens emphasizes the need for interagency data sharing to track vulnerable youth across systems. Haskell says Deputy Mayor Arteaga is prioritizing interagency data sharing and has begun conversations leveraging the new CIDI executive director's expertise.
Stevens notes a 31.7% increase in drop-in center usage in the first four months of FY2026. Thorne attributes the increase to expanded community outreach, a new 24-hour drop-in center in the Bronx, and peer navigators bringing youth into centers.
Stevens asks whether DYCD requires providers to make SCR reports solely because a minor seeks services at a drop-in center. Escamilla-Davies says providers are mandated reporters but DYCD is working with ACS to retrain staff on reducing unnecessary reports, noting some circumstances may require SCR calls to activate ACS services for minors needing guardianship.
Stevens presses on what guidance DYCD gives providers about mandated reporting obligations and policies for youth under 16, noting providers report confusion. Haskell says she wants to investigate further with ACS, and Thorne notes ACS attends quarterly provider meetings to discuss appropriate SCR call practices.
Stevens raises provider reports that the streamlined DHS referral process takes 30 days, not the 20 days DYCD states. Thorne says policy allows 20 days for DHS placement but acknowledges it may sometimes take longer, with providers able to email her to escalate. Stevens notes the gap between policy and practice.
Stens questions whether drop-in center clients can also bypass DHS intake, since drop-in centers are not shelters and don't allow sleeping. Thorne confirms the same streamlined process applies from drop-in centers, but Stevens points out the logical gap: youth waiting 30 days for placement cannot sleep at a drop-in center in the meantime.
Stevens criticizes that only two street outreach teams with about eight total people cover all five boroughs, calling it ridiculous and demanding at least one team per borough. Haskell says each team has 4-5 people and is flexible, but Stevens insists more funding is needed and says she will advocate for a new need in the budget.
Stevens confirms the $6 million in baseline funding for 100 new beds serving homeless young adults 21-24, which she fought for over four years. Haskell says 20 of the remaining 30 beds should be online by November pending OCFS certification, with the last 10 still being sited on Staten Island.
Stevens asks about reimbursement rates for the new HYA beds and whether they reflect actual costs, then asks about utilization rates. Haskell reports 98% utilization for crisis HYA beds and 99% for TIL, noting these figures will appear in the MMR but not the PMMR.
Stevens asks about HPD assuming responsibility for City FEP vouchers that RHY youth should access, and what conversations DYCD has had with HPD and DSS. Tracy Thorne says DYCD has been named in HPD's CityHAP program but emails are still going back and forth and no meeting has occurred yet.
Stevens presses on provider communication about the voucher transition and what housing alternatives must be exhausted before HPD vouchers. Thorne says DYCD will wait for the HPD meeting before communicating with providers, and currently accesses rapid rehousing and supportive housing as alternatives.
Haskell praises DYCD's housing navigation teams for efficiently placing youth in housing through various voucher programs, noting 309 of 474 youth with federal vouchers have already been provided alternative housing options ahead of the December federal voucher termination deadline.
Stevens asks whether drop-in centers will have access to the new HPD vouchers, since they are not residential programs. Thorne explains housing navigators at drop-in centers serve youth who are also in residential programs, and the details of voucher access are still being worked out with HPD.
Stevens asks about the impact of federal funding cuts on upstate RHY shelters and whether NYC has seen increased demand. Haskell says no influx has been observed, and as state coordinator she maintains close contact with upstate providers who know NYC services are available.
Stevens asks about DYCD's communication with OCFS regarding potential federal funding reductions and contingency planning. Haskell confirms ongoing monthly meetings with state providers about the impact, noting the Basic Center Program funding has been around for decades but the city can only remain available to help.
Stevens concludes the Q&A with administration, noting extensive follow-up is needed, then opens the floor for public testimony with instructions on decorum, two-minute time limits, and written testimony submission procedures.
Sebastian Vontae of Safe Horizon describes operating two drop-in centers, a crisis shelter, and mobile street outreach. He highlights the impact of federal SNAP exemptions being removed for homeless youth, urges raising bed rates to $80,000, committing to release the next RFP, and including RHY youth in voucher program design and NYCHA N0 priority.
Regan Robinson of Covenant House NY urges reinstatement of $3 million citywide funding for the guaranteed income initiative, citing that 60% of Cash with Care participants secured housing and 70% gained employment in nine months. She also advocates for raising bed rates to $80,000 and including RHY youth in voucher rollout design.
Dylan Kelba, a 20-year-old Covenant House resident, shares that he came to the shelter seeking safety from a dangerous situation. Now on a waiting list for his own apartment and selling art, he urges the city to increase bed rates to $80,000, include youth in voucher program design, and restore guaranteed income funding.
Samih Akanoishi, a 23-year-old immigrant who lost his F1 scholarship at Stony Brook University due to illness, describes being turned away from adult shelters for lacking documentation before finding Covenant House, which provided a bed, food, immigration assistance, and CNA training. He now works at NYU Langone and lives in his own apartment through rapid rehousing.
Nija Williams, a 17-year-old Covenant House youth ambassador, shares she was kicked out by her mother and found support at Covenant House, which helped her return to school and graduate in the top 8% of her class. She advocates for raising bed rates to $80,000, including youth in voucher design, and restoring guaranteed income funding.
Stevens thanks the youth panel for their courage in sharing their stories, emphasizing the importance of humanizing the data discussed in hearings and encouraging them to continue civic engagement and advocacy, potentially even running for office themselves.
Stevens questions Sebastian Vontae about Safe Horizon's street outreach operations. Vontae explains his organization runs the only DYCD-funded outreach contract with two teams of 2-4 people each, working 7pm-3am shifts covering multiple boroughs per day, and says having more staff and a team per borough would significantly improve coverage.
Stevens asks Regan Robinson about the Cash with Care program details. Robinson confirms Covenant House received $1.5 million of a $3 million citywide council initiative for a one-year guaranteed income program that was not renewed, despite promising early outcomes, and they are seeking restoration of funding.
Maria Jarises of Housing Solutions of New York testifies that providing a bed is not enough; young people need trusted adults, mental health services, education and employment connections, and early housing planning to prevent cycling into the adult shelter system. She calls for better coordination across systems serving youth.
Edward Reyes of Inwood House at Children's Village testifies about the growing disconnect between DYCD requirements and available resources, arguing funding formulas based on bed utilization rather than actual service needs leave programs unable to meet complex demands. He calls for funding based on service scope, staffing reflecting youth acuity, and vacancy assumptions built into contracts.
Lade Swanson of the Ali Fournay Center reports over 400 youth on their wait list, 21-24 year olds waiting six months for crisis beds, and 40 youth nightly at drop-in centers preferring chairs over DHS shelters. They criticize the lack of communication about CityHAP vouchers, share that an attorney took money from their own salary to cover a client's legal fee, and announce plans for legislation to allow overnight sleep in drop-in centers by changing building codes.
Mary Astrid Nussbaumer of Anthos Home testifies about helping over 230 young adults move from shelter into homes, recommending that all RHY have access to housing vouchers, funding housing navigation capacity, and funding one year of stability services. She reports 98% of households remained stably housed one year after move-in.
Dr. Henry Love of Point Source Youth shares his personal story as a housing-instable queer youth who survived a suicide attempt, and notes 40% of homeless young adults report lifetime suicide attempts. He advocates for prevention programs like the Targeted Housing Assistance Program, which provides $3,700 on average within 48 hours and achieves 92% housing retention at six months, to reduce inflow into the shelter system.
Cornelius Wiggins of Mikos Light, formerly a homeless queer youth himself, presents findings from five community needs assessments of 650+ surveys showing 80% of respondents identified as trans/gender nonconforming, 67% hadn't felt safe in a while, and housing resources rated 3 out of 10. He calls for a comprehensive citywide needs assessment, stronger peer navigation, and accountability for outcomes beyond just providing beds.
Stevens responds to the panel, highlighting Wiggins's point that a bed is not an outcome and the goal should be permanent housing. She questions Lade Swanson about proposed legislation to change building codes for drop-in centers, learning they are pursuing both state and city legislation to reclassify drop-in centers to allow temporary overnight sleep.
Laura Pennington of Pinnacle Community Services testifies via Zoom about operating a 12-bed RHY shelter in Niagara County, the sole provider serving as overflow for Erie County. She warns that five upstate shelters lost federal Basic Center Program funding, that all of upstate NY has only 350 beds, and that without the HHS grant continuing past October 1, many providers including hers may be forced to close.
Stevens questions Pennington about upstate bed capacity and waitlists. Pennington confirms 350 total beds in all of upstate NY, currently no waitlist but anticipating one as shelters close, and says she personally has not been part of DYCD's communications with upstate providers. Stevens commits to building the partnership between upstate and downstate providers.
Stevens makes a final call for Zoom testimony, reminds attendees they can submit written testimony within 72 hours, thanks community members and CBO staff for testifying, and adjourns the hearing.