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New York City Council
Oversight - Shelter Safety
Read summaries and jump into the video at the segment start.
Staff welcome attendees to the Committee on General Welfare, ask to silence electronics, direct those wishing to testify to the sergeant at arms, and instruct attendees not to approach the dais.
Chair Hudson introduces herself, states her pronouns, welcomes attendees to the hearing on shelter safety, and recognizes Council Members Morano, Ung, and Wilson.
Hudson says shelter must be safe and dignified, citing deteriorating facilities, overcrowding, violence, theft, and understaffing. She notes over 83,000 people slept in shelters and over 500 sites, mostly nonprofit-run.
Hudson says the hearing will examine DSS oversight and two bills: Intro 99 on family shelter placements and Intro 387 on critical incident reporting.
Brewer says Intro 99 would require DHS to report annually on families with children placed in the same or an adjoining zip code as their last address, to keep children near schools and support networks.
Hudson says Intro 387, sponsored by the Public Advocate, would require annual reporting on critical incidents, security improvements, and NYPD agreements.
Williams says 83,000 people are in shelter, cites Priority 1 incidents at a women's shelter, and argues Intro 387 would improve reporting on assaults, weapons, arson, and theft.
Hudson thanks committee and personal staff, then introduces a panel of people with shelter experience: Denton Hutchinson, Janet Jackson, and Francisco Insfran.
Hutchinson, formerly in shelter seven years, says security staff escalate conflict and ignored a resident who later died. He also describes being forced outside in winter while sick with shingles.
Jackson, formerly homeless five years, describes mice in mattresses, flooding, invasive staff entries, long commutes, and unaddressed grievances. She says safety means dignity and clean, maintained space.
Insfran, speaking in Spanish and English, says shelter staff are not trained to de-escalate, ignored his requests for a room key, and retaliated when he closed his door. He asks for basic respect and safety.
Hudson thanks the panel and says their testimony reflects work needed to make shelters safe, secure, and dignified.
Williams asks whether there was a clear line to report complaints and what happens after. Jackson and Hutchinson describe grievances going unanswered or being handed to the person complained about.
Ung asks about language capabilities. Insfran says he can speak English but cannot write it, and other Spanish-speaking residents relied on him to translate because staff did not provide language help.
Hudson says the administration will now present testimony and committee counsel will administer the oath.
Counsel asks witnesses from the mayoral administration to raise their right hand and affirm to tell the truth. They state their names for the record.
Erin Dalton, DSS Commissioner, thanks the panel and says procedures and data matter, but resident perceptions of safety and dignity are the most important measures she wants to track.
Dalton says DHS oversees 502 shelters, seven city-run, with round-the-clock security, access controls, cameras, risk assessments, peace officers, and provider training on de-escalation and trauma-informed care.
Dalton explains good neighbor policies, community advisory boards, and safety transfers. She reports 2,654 safety transfers in FY26, slightly up from 2,625 in FY25.
Dalton says 58% of shelter buildings predate 1980, DHS inspects and repairs, publishes a repair scorecard, and standard shelters average fewer than four open violations while flexible hotels average about 42.
Dalton separates crime data from health and safety needs. She says arrests and serious violence are down, deaths fell from 512 to 305, but complaints about staff-client interactions rose 46%.
Dalton supports transparency but says DHS cannot publish disaggregated security information and already reports to state bodies. On Intro 99, she says DHS tries to place families near the youngest child's school but zip code data may miss DV circumstances.
Hudson asks what led to the increase. Dalton cites right-to-shelter and asylum seeker demand; Fellini adds DHS is replacing old stock with purpose-built shelters.
Hudson asks about changing shares of older adults and substance use. Dalton says the older adult share is increasing, does not have precise substance use numbers, and clarifies mortality decline reflects a younger population with more children.
Morano asks when DHS will provide legal analysis on declining a VA grant for homeless veterans. He then asks whether community advisory boards only function after shelter siting decisions are made.
Morano notes 2,654 safety transfers and asks who is moved when a resident is threatened. Fellini says it depends; if the victim wants to stay, the alleged perpetrator may be transferred. Safety transfer is the disciplinary consequence.
Wilson asks about de-escalation and sensitivity training. Fellini says DHS trains over 15,000 staff through the HEARTS curriculum and follows up on complaints to see if training is implemented.
Wilson asks about standards for collecting grievances and repeated complaints against staff. Fellini describes the provider grievance process, appeals, 311, and DSS ombudsman tracking trends.
Wilson asks how follow-up works. Fellini says the ombudsman contacts about 90% of complainants, shelters have three to five days to respond, and DHS monitors for patterns or need for transfer.
Brewer asks whether DHS collects zip code and nearby school data. Dalton says the specific Intro 99 data is not in the MMR; the MMR reports the share of families in the borough of the youngest child's school.
Brewer says families were often told it was too hard to place near school. Dalton says initial placement in the borough of the youngest child's school was 62.9%, rising over 80% over the duration of stay.
Brewer raises IEP students commuting from Rockaway to Manhattan and asks if DHS tracks transfers for school issues. Fellini says DHS does track transfer requests.
Ung asks how non-English speakers navigate grievances. Fellini says shelters must comply with language access policy and have a 24-hour language line; DHS does not track provider staff language capabilities but encourages diverse staff.
Nurse says her office helps residents transfer out of shelters but facilities do not improve. She describes a stabbing in July and a botched CAB rollout, urging DHS to improve community engagement after violence.
Aviles says case management and CityFEPs support is inadequate. Fellini says the housing specialist ratio is about 1 to 40 at sites that have them, but some sites lack housing specialists.
Aviles asks how many housing specialists citywide and how performance is tracked. Fellini says she does not have the number and DHS measures success by CityFEPs placements.
Hudson asks how DHS ensures DV survivors are sent to safe housing. Fellini describes DV screening, NOVA referrals, separating the alleged abuser, and following exclusion recommendations.
Hudson asks what diversion and mediation entail. Fellini says the goal is to avoid shelter by reconnecting to community resources, mediating with primary tenants, and screening for DV and space.
Hudson asks about reducing density. Dalton says DHS is on track to comply with Executive Order 2 limiting single adult capacity to 200 beds by 2027 and purpose-built shelters average about 160 beds.
Hudson asks how DHS decides to repair or close shelters like Bellevue. Fellini says closure is a last resort, based on enforcement agency advice and engineering reports; DHS prefers remediation.
Hudson asks how many shelters need significant repairs. Fellini says DHS tracks 55 publicly owned buildings but does not readily track private buildings; 268 new needs are pending for 95 shelters.
Hudson asks how DHS chooses capital projects and design principles. Fellini says all 55 public buildings are eligible, ranked by need, and DHS relies on providers' visions for design.
Hudson cites 3.82 violations per standard shelter and 37.56 per flexible shelter. Dalton says hotels are non-residential buildings and applying residential code inflates violations; Fellini says not every violation is an active hazard.
Hudson cites Local Law 154 requiring reporting on air conditioners. Fellini says DHS is preparing the report due in a few days and is not ready to discuss.
Hudson cites NYPD data showing arrests rose from 405 in Q3 FY25 to 512 in Q4. Dalton says she is integrating data, questions NYPD data quality, and notes arrest is a measure of police activity.
Hudson cites Gothamist reporting on fights and Priority 1 incidents at Tillery. Fellini says incidents decreased 48% for P1s and 45% overall since BRC took over.
Dalton provides Tillery data: 911 calls down 13% to 1,248 in FY26, assault/violence calls down 41% from peak, PD complaints down to 207, felony reports down to 21, and felony arrests down to 12.
Hudson asks what caused the drop. Fellini credits a new provider, reassessments, transfers, and repairs. Dalton and Fellini say they have not visited Tillery; Hudson invites them.
Hudson asks what site-level metrics DHS tracks. DHS says incidents, complaints, and grievances. Dalton says integrated data could show Tillery improvements. DHS does not know current Tillery staffing.
Hudson asks what DHS has done since June 2026 to refresh Tillery under a new operator. DHS says nothing to add.
Hudson reads an email from a city employee alleging discrepancies in reporting and a security contractor retained despite a DHS recommendation not to renew. Fellini says DHS investigates impropriety and may refer to DOI.
Hudson asks about provider subcontracts and termination. Fellini says providers manage subcontracts, DSS ACCO approves, and DHS can recommend termination. Dalton says DHS can terminate primary contracts, not subcontracts.
Hudson announces a two-minute second round, starting with Morano, then Brewer, then Aviles.
Morano asks if 42 open violations per hotel would be acceptable for a private landlord. Dalton says residential code applied to hotels inflates violations but DHS must improve. She says she is integrating data to measure surrounding community impact.
Morano asks who signs off on continuing to pay for facilities with dozens of violations. Dalton says she is ultimately responsible and will ensure standards are met.
Brewer asks about mental health needs and metrics. Fellini says DHS assesses at intake and revisits program models; Dalton says behavioral health integration is a priority.
Brewer asks how many staff help with school transfers and busing. Dalton says DHS is working with public schools on attendance, door-knocking, and transportation data, but not every shelter has a school liaison.
Aviles asks how whistleblower policies are communicated to staff and subcontractors and how many complaints there have been. Dalton says she does not have the information and will follow up.
Aviles asks how shelter residents are protected from retaliation and whether DHS tracks complaints from subcontractors. Fellini says DHS investigates retaliation and does not carve out subcontractor complaints but can look into it.
Aviles asks for a packet on the grievance process, good neighbor policy, and language access. Fellini says DHS tracks language line use but agrees to provide information.
Hudson asks how DHS handles resident conflict. Fellini says there is no formal mediation process; providers handle conflict, may move residents within a building, or transfer to another shelter.
Hudson asks about training on sanctuary city policies and ICE entering shelters. Fellini says DHS has required trainings and refreshers. Dalton says ICE incidents are reviewed and lessons shared with providers.
Hudson cites a $313 million security budget for FY26. Dalton says DHS numbers differ: $18 million for peace officers and $40.8 million for contracted security for FY27, and will clarify.
Hudson asks how the FY27 amount was determined and funding sources. Priester says most is city tax, PS lines, contracted security, equipment, and body-worn camera contracts; DHS will provide a breakdown.
Hudson asks about theft and lockable storage. Fellini says single adult shelters must provide lockable storage and can store valuables. Priester says security risk assessments check that lockers are not movable.
Hudson asks how DHS supports CPAP machines, oxygen tanks, and refrigerated medication. Fellini says DHS ensures appropriate outlets, access control, and provides refrigeration or mini fridges.
Hudson asks about projections for people leaving Rikers. Dalton says the administration is convening partners to provide direct shelter access and avoid traditional intake, and to connect people to benefits and behavioral health care.
Hudson asks about formal planning with Mach J and data on exits to shelter. Dalton says she will follow up on specifics and notes significant overlap between the Rikers population and homelessness.
Hudson cites Local Law 124 requiring 40 hours of training and an 8-hour refresher. Priester says there are 3,542 security guard positions as of September 1, 2026.
Hudson asks vacancy rates. Priester says DHS does not track aggregate security guard vacancy; the peace officer vacancy rate is 20%.
Hudson asks how long the vacancy rate has been at 20%. Priester says it has been a challenge for a couple of years, was recently 25%, and is trending downward.
Hudson asks if all security guards received required training. Priester says 82% received 40-hour training as of September 1, 2026, and 542 completed the 8-hour refresher.
Hudson tries to reconcile 542 refresher completions with 3,542 total and 2,916 who completed 40-hour training. Priester says the 8-hour refresher is only required after one year and DHS will improve tracking.
Hudson asks if residential aides and community technicians receive security training. DHS says yes.
Hudson cites a 2024 report on misconduct involving 31 peace officers. Priester says 18 shelters have peace officers, staffing ranges from 10 to 26, and they receive academy training on use of force, de-escalation, and crisis intervention.
Hudson asks current staff-to-resident ratios. Fellini provides model budget staffing for 200-bed shelters: 43 for single adults, 46 with behavioral health, 51 at assessment, 60 for adult families, and 37 for families with children.
Fellini corrects earlier testimony and says DSS does have the ability to cancel subcontracts and has exercised that right.
Hudson asks what DHS does to retain staff. Priester describes succession planning, recognition, men's and women's conferences, exit interviews, and placing new officers near their homes.
Hudson asks how salaries compare to other agencies. Priester says DHS peace officer salaries are extremely low and competing agencies pay more, causing attrition. Dalton calls it a structural problem involving DCAS and state civil service.
Hudson says similar roles at other agencies pay more for less grueling work and calls for an overhaul. Dalton says position reclassifications involve DCAS and state civil service.
Hudson asks about preventing illness in congregate shelters. DHS says prevention is key, with vaccination reminders, winter coat checks, and single-occupancy isolation rooms.
Hudson cites Local Law 35. DHS says 113 of 143 targeted sites, or 79%, have one or more mental health professionals on site who assess families and make referrals.
Hudson asks about training to identify serious mental illness and make SPOA referrals. DHS says it collaborates with DOHMH on quarterly mandatory training and coordinates with ACT and SPAC teams.
Hudson asks how DHS continues to prevent overdose deaths. DHS says it refers clients to treatment, trains staff in harm reduction and overdose response, provides naloxone, and requires an overdose prevention champion at each shelter.
Hudson asks how many complaints, grievances, and incidents DHS received. DHS says it does not have grievance numbers; complaints were 31,620 in FY26, 36,740 in calendar year 25, and 31,051 in calendar year 26.
Hudson asks for incident data. DHS provides serious incident rates per thousand single adults: 54.7 in FY22, 41.0 in FY23, 32.7 in FY24, 30.1 in FY25, and 28.3 in FY26.
DHS provides adult family rates falling from 21.8 to 9.0, and families with children rates falling from 16.0 to 8.0 per thousand residents.
Hudson asks to disaggregate complaints. DHS says it does not have complaint type by rate but lists serious incident categories including life-threatening injury, accident, arrest, utility failure, overdose, fight, dispute, contagious disease, and environmental hazard.
Hudson asks about OCS role in complaints. DHS says the Ombudsman's Office receives and routes complaints, communicates with complainants, and has 13 budgeted staff, 12 filled and one onboarding.
Hudson asks about complaints entered into the IQ system. DHS provides FY26 number 31,620 and categories including bed losses, transfers, reasonable accommodations, discrimination, assault, harassment, physical, rehousing, and staff-client interactions.
Hudson asks what counts as resolved and average days. DHS says the shelter director must respond with the next step, average resolution is five days. DHS says it does not incorporate complaint data into provider performance evaluations or RFP scores.
Hudson opens public testimony, reminds attendees of decorum, explains the two-minute limit, and gives instructions for submitting written testimony.
Wilkie, Coalition for the Homeless, says shelters are chaotic due to staff mistreatment, unresponsive complaints, and poor conditions. She says 31,000 complaints undercount because evening and weekend complaints go to 311 and are not reported to the ombudsman.
Mann, Win, says 40% of families were placed in a different borough than the youngest child's school. He supports Intro 99 for zip code data and urges passage of Intro 816 and Intro 232 to fix PATH intake.
Berkman, NYLAG, says the city fails to oversee shelters and safety transfers often require legal intervention. She supports Intro 99 to keep families near their communities and schools.
Hudson asks whether Berkman contacts site staff or DHS. Berkman says she contacts DHS legal, but clients have already tried at the shelter and been denied or ignored. Hudson says lawyers should not be needed for safety transfers.
Flores says he has reported crimes at BRC, Bellevue, and Breaking Ground shelters for over a decade, including assaults, larceny, corruption, and fraud. He calls for federal hearings and indictments.
Hudson calls Viviana De Jesus online and then Jorge Jimenez, Lauren Napier, Gabriela, Calvin Michael, and Clifton Williams in person.
De Jesus, a shelter resident, says site director Lisa Harris uses abusive and retaliatory tactics, berates case managers, and uses security to intimidate residents. She says there is no real grievance process.
Hudson calls Jorge Jimenez, Lauren Napier, Gabriela, Calvin Michael, and Clifton Williams to the witness table.
Jimenez says he tried for five months to file a grievance but could not get an email address and faced tactical avoidance. He says contracts and performance reviews create incentives to suppress grievances and calls for more social workers.
Napier spent 224 days in DHS shelters. She describes a ceiling collapse at Franklin, injury during evacuation, sleeping in wet rooms, no potable water or hot water at Empower, lost medication, and staff retaliation.
Williams, recently in the DHS system, says New York offers many services but lacks a cookie-cutter transition program. He says he has three grievances he could not turn in due to being directed in circles.
Michael, formerly homeless seven years, says congregate shelters are pressure cookers. He recommends single rooms with locks, housing first, de-escalation training, air conditioning, and more women's safe havens.
Gabriella, who has autism, says a roommate stole belongings and staff gaslighted him. He says there is no accountability and residents are told to just deal with it.
Hudson calls Wendy Bruno, Grace Busser, Timothy Pena, Hannah Mercurius, and Helen Shrome.
Bruno, a stalking victim, says DV shelters exclude stalking victims, forcing them into city shelters where stalkers can pay staff or others to threaten them. She received four death threats at Win shelter and became street homeless to trigger a safe haven.
Mercurius, Brooklyn Defender Services, says shelter rules create conflict and staff call law enforcement or ACS. She supports Intro 99 because families are placed far from support networks, causing school absences and ACS risk.
Strom, Urban Justice Center, says the city must prioritize moving people out of shelter using vacant 9G units, HPD apartments, and 6,000 supportive housing units. She says people languish for years while shelters cost more than vouchers.
Busser, Bronx Defenders, says police presence compounds trauma and Intro 387 risks reinforcing policing. She asks for clear definitions, distinction between allegations and substantiated findings, and separation of resident, staff, and police-response incidents.
Hudson thanks everyone who testified, notes written testimony can be submitted for 72 hours, says the hearing showed more work is needed to create safe and dignified shelter, and adjourns.