Report to the General Assembly - State Fiscal Year 2009 (pdf)

Report to the General Assembly

Preface

The Illinois Department of Human Services (IDHS) Emergency Food and Shelter Program (EF&S) is compiled for the House and Senate Appropriation Committees of the Illinois General Assembly in accordance with 305 ILCS 5/12-4.5. This report provides historical and current fiscal year information about the Emergency Food and Shelter Program, and outlines funding by detailing program expenditures, types of services, and number of people served.  This report should not be construed to represent the total homeless population in Illinois. This report contains data compiled from quarterly reports from organizations funded by the EF&S Program.

Introduction

The Illinois Emergency Food and Shelter (EF&S) Program was developed to provide immediate food and shelter to homeless persons and families or persons and families at imminent risk of becoming homeless. The EF&S Program was designed to provide meals, beds and supportive services through not-for-profit organizations to homeless individuals and families to assist them to return to self-sufficiency.

Funding for the EF&S Program has provided funding for emergency shelters, transitional shelters, voucher programs, food, and an array of supportive services to homeless individuals and families across the state of Illinois.  In State Fiscal Year 2009, $ 8.7 million in funding was allocated to the Emergency Food and Shelter Program.

Program Goal

The goal of the Emergency Food and Shelter Program is to render immediate and comprehensive shelter services to homeless individuals and families or individuals and families at imminent risk of homelessness. The program provides food, shelter, and supportive services through local not-for-profit agencies. Program deliverables require that:

  • All participants be provided with case management services, counseling services and advocacy services within 5 days of admittance to the program for transitional programs and within 15 days for overnight programs.
  • All participants have access to case management services outside of normal business hours of operation including, but not limited to evening case management service hours.
  • All participants have complete intake and assessment done upon entry into the program. Providers must submit all intake and assessment forms to IDHS annually for approval.
  • All providers have a community outreach plan which includes a detailed description for notifying the community of the program, hours of operation, and admittance / eligibility requirements into the program they administer for IDHS. This plan includes outreach to other community service agencies and the local Family and Community Resource Center (FCRC). IDHS must be advised of any publication and distribution of flyers, printed materials and / or brochures that are part of the IDHS funded program.
  • All providers have a referral process that assists program participants with enrollment into public benefit programs such as TANF, Supplemental Nutrition Assistance Program (SNAP, formerly known as food stamps), ALL Kids, medical assistance, disability assistance, as well as any other resources that address the needs of the program participants.
  • All progress and supportive services for transitional shelter participants be tracked and reported within each participant's case file through the development of an Individual Service Plan that includes at a minimum a record of the participant's supportive services, case management, outcomes, goals, progress notes, and benefit assistance.
  • All providers have the ability to download the IDHS Supplemental Nutrition Assistance Program (SNAP, formerly known as food stamps) application and distribute to all eligible households.
  • All providers have a written agreement or memorandum of understanding for referrals with other social service providers. The agreement or memorandum of understanding includes at a minimum; the type of services to be provided, the referral process of each agency, and follow-up actions.
  • All providers accurately report outcomes and submit quarterly reports to IDHS utilizing the Emergency Food and Shelter web-based reporting system.
  • All providers report the following information in the annual Funding Plan:
  1. an unduplicated number of projected participants to be served in the fiscal year;
  2. an unduplicated number of projected households to be served in the fiscal year;
  3. the projected nights of shelter to be provided during the fiscal year; and
  4. the projected number of meals to be provided, served, purchased, or vouchered during the fiscal year.

Administration

The IDHS Division of Human Capital Development, Bureau of Homeless Services and Supportive Housing administers the state funded EF&S Program. Program staff perform all administrative and program management functions that includes, but is not limited to, the implementation of funding plans, contracting, program payments, and program monitoring. The EF&S program deliverables are verified by IDHS staff through on-site field monitoring.

Funding

The General Revenue Fund (GRF) allocation for the EF&S Program provides food, shelter and supportive services to homeless individuals and families throughout the state. The allocation is divided between Chicago (54%) and the balance of the state (46%).

The public and not-for-profit organizations that participate in the EF&S Program must provide shelter and supportive services and match at least 25% of the program costs from other sources. Fifty percent of the match must be cash. The other fifty percent may be cash and/or in-kind services, including volunteer services, or the value of the property.

Included in the EF&S appropriation are funds allocated for technical assistance. The Illinois Association of Community Action Agencies provides monthly information to homeless agencies across the state regarding legislative and programmatic changes, public and private funding opportunities, and changes in federally funded homeless programs.

Reporting

In Fiscal Year 2009 the Department made significant improvements to the EF&S Program by developing a web-based quarterly reporting system. In an attempt to capture the maximum amount of available data, the Department designed a reporting system compatible with the U.S. Department of Housing and Urban Development homeless program reporting formats. The Department also added data elements to the reporting system to provide statistical information regarding homeless children.

Fiscal Reporting: Fiscal compliance, program activity, and program monitoring are employed by IDHS staff to ensure the effective administration of the EF&S Program. Upon execution of the EF&S contract, all agencies are required to report expenditures quarterly utilizing a web-based reporting system.

Service Reporting: client activity is also reported quarterly on the IDHS web-based reporting system. The number of participants served, characteristics, services, causes of homelessness, special needs, and household types are just some of the data elements collected.

Program Services

Shelter programs funded by the EF&S Program include:

  • Overnight / Emergency Shelters that provide emergency sleeping accommodations for 12 or fewer hours that serves at least one meal and provides supportive services;
  • Voucher Programs that provide emergency shelter on a per diem basis at a nearby hotel or motel when other overnight shelter is not available and also provides supportive services and may provide food;
  • Transitional Shelters that provide shelter, food and supportive services for up to 24 months. While the majority of the EF&S funding provides for food and shelter, all organizations must also provide supportive services to receive funding from the EF&S Program.

The supportive services provided by the EF&S Program assist homeless individuals and families return to self-sufficiency. The eligible supportive services include:

Program Description
Advocacy Intervening on behalf of program participants to assist in the receipt and use of support services
Alcohol Abuse Services Providing or arranging services for participants to attend AA (Alcoholics Anonymous) or other programs that address alcohol abuse issues
Case Management Coordinating the acquisition, delivery and use of supportive services. Case management must include individual assessments that are used to develop individual service plans
Child Care Providing or arranging child care services
Children's Services Providing or arranging services for child-specific services, such as child abuse counseling or preschool programs
Counseling Providing or arranging for individual or group counseling to alleviate physical abuse, mental health issues, substance abuse, and/or familial obstacles that are preventing a return to self-sufficiency
Domestic Violence Providing or arranging services for victims of domestic violence
Education Providing or arranging services for participants to complete a course of study leading to a diploma or specific skill certificate
Employment Services Providing or arranging services for participants to complete job preparation and/or to secure job interviews or employment. This may include acquiring special tools or clothing to perform the job in which the participant is placed or receiving training
English as a Second Language English language services available to persons who seek to improve Language their English language skills
Follow Up Assessing the need and providing additional services upon completion of, and discharge from the Emergency Food and Shelter Program
Health/Dental Services Providing or arranging services for participants and assuring use of needed medical and dental services
HIV/AIDS Related Services Supportive services related to the needs of participants diagnosed with HIV/AIDS
Housing Location/Inspection

Locating and/or the initial inspection of rental property on behalf of Inspection participants to ensure that the housing is decent and adequate for the household and

meets the general health and safety standards prior to tenant occupancy

Legal Service Referral Referrals to any legal services which may be needed by participants
Mental Health Services Providing or arranging services that address serious mental health issues that can not be resolved through regular counseling services
Outreach Locating and contacting homeless individuals or families in the community and inform them of available services
Substance Abuse Services Services Providing or arranging services for participants to attend NA (Narcotics Anonymous) or other programs that address substance abuse issues
Transportation Transporting or purchasing services, such as bus tokens or taxi fares for participants to obtain medical care, public assistance, education, training and other services not provided on site

Fiscal Year End Program Data

The following statistics were downloaded directly from the Department's EF&S web-based reporting system. All of the following program data was compiled from the quarterly reports submitted by the EF&S providers.

Number of Homeless Persons

Listed below is the total number of adults and children under the age of 18 that utilized EF&S during the fiscal year.

  • Adults - 29,289
  • Children under 18 - 12,228
  • Total - 41,517

Number of Homeless Households

  • 16,182 Single Males
  • 5,685 Single Females
  • 246 Couples with No Child
  • 681 Couples with Child
  • 170 Males with Child
  • 5,103 Females with Child
  • 28,067 Total Unduplicated Households

Prior Living Situation

The EF&S participants  reported sleeping in the following places in the week prior to entering the program:

Prior Living Situation Adults Children Under Age 18
Non-Housing (street, park, car, bus station, etc.) 4,437 418
Emergency Shelter 5,084 1,959
Transitional Housing for homeless persons 1,058 722
Permanent housing 333 141
Psychiatric facility 184 3
Substance abuse treatment facility 535 112
Hospital 425 32
Jail/Prison 1,338 9
Domestic violence situation 1,201 1,148
living with friends/relatives 8,702 4,763
Rental housing/Eviction 3,570 1,781
Disaster/Fire 295 232
Condemned Housing 165 145
Other 1,962 763
Total 29,289 12,228

Other Shelters

This section provides the number of participants that used "other" shelters in the year prior to entering the Emergency Food and Shelter Program. If no shelters were utilized during the prior year, the number of these participants were reported in the "None" category.

Number of Shelters Adults Children Under Age 18
None 17,552 7,669
1 7,526 3,068
2 2,706 865
3 753 335
4 302 121
5 or more 450 170
Total 29,289 12,228

Age and Gender

This section describes the age and gender of all participants that entered the program during the fiscal year.

Age Males Females
62 and over 587 206
51-61 4,208 1,400
31-50 9,319 5,075
18-30 3,482 4,916
Emancipated Minors or Unaccompanied Youth 29 67
Total Adults - 29,289
13-17 785 878
6-12 2,015 2,060
1-5 2,609 2,488
Under 1 687 669
Total Children - 12,191

Age and Gender of Reunited Family Members or Newborns

The age and gender of newborns, other family members, emancipated minors, or unaccompanied youth reunited with a participant that entered the EF&S program during the fiscal year is provided in this section.

Age Male Female
62 and over 0 0
51-61 0 0
31-50 0 0
18-30 0 0
Emancipated Minors or Unaccompanied Youth 0 0
Total Reunited Adults - 0
13-17 1 1
6-12 0 3
1-5 2 0
Under 1 13 17
Total Reunited Children - 37

* Emancipated or Unaccompanied Youth are defined as: emancipated minors, unaccompanied youth, married youth and/or youth with a child.

Ethnicity

This section provides the ethnicity of the EF&S participants entering the program within the fiscal year.

Ethnicity Adults Children Under Age 18
Hispanic or Latino 2,120 1,112
Non-Hispanic and Non-Latino 27,169 11,116
Total 29,289 12,228


 

Race

This section provides the race of participants entering the EF&S Program during the fiscal year.

Race Adults Children Under Age 18
American Indian/Alaskan Native 185 86
Asian 151 123
Black/African American 15,951 8,716
Native Hawaiian/Other Pacific Islander 42 10
White 10,780 2,204
American Indian/Alaskan Native & White 55 24
Asian & White 26 15
Black/African American & White 642 411
American Indian/Alaskan Native & Black/African American 35 19
Other 1,422 620
Total 29,289 12,228

The "Other" Category exists for participants that did not declare themselves in any of the given categories.

Special Needs

This section provides information regarding the types of special needs declared by the EF&S program participants upon entering the program. (A participant may have multiple special needs.)

Special Need/Condition Adults Children Under Age 18
Substance Abuse (SA) 6,989 122
Alcohol Abuse (AA) 6,793 70
Mental Illness (MI) 4,273 112
Developmental Disability (DD) 1,119 167
Physical Disability (PD) 1,812 54
HIV and/or AIDS (HIV) 285 6
Chronic Medical Health Problem 2,995 168
Domestic Violence 1,989 571
Unaccompanied Youth 60 24
Pregnant/Parenting Teen 251 50
Ex-Offenders 1,738 76
Other 613 49
Total 28,917 1,469

Disabling Condition

The number of program participants declaring a disabling condition upon entry into the program is 7,103.

The definition of a disabling condition is:

  1. A disability as defined in Section 223 of the Social Security Act; 
  2. a physical, mental, or emotional impairment which is expected to be of a long continued and indefinite duration; substantially impedes an individual's ability to live independently, and of such a nature that such ability could be more suitable housing conditions; 
  3. a developmental disability as defined in section 102 of the Developmental Disabilities Assistance and Bill of Rights Act; 
  4. the disease of acquired immunodeficiency syndrome or any conditions arising from the etiological agency for acquired immunodeficiency syndrome; or 
  5. a diagnosable substance abuse disorder.

Veterans

The number of participants that declared themselves as a veteran* that participated in the EF&S Program is 2,665.

* A veteran is anyone who has ever been on active military status.

Cash Income

This section provides monthly cash income levels for all EF&S program participants entering the program and the income status of program participants when exiting the program.

Entering the Program Adults Children Under 18
No Income 18,432 10,232
$1 to 150 902 155
$151 to 250 1,322 185
$251 to 500 2,286 497
$501 to 1,000 4,515 713
$1,001 to 1,500 1,140 232
$1,501 to 2,000 443 121
$2001 + 249 93
Total 29,289 12,228
Exiting the Program
No Income 10,169 8,432
$1 to 150 544 110
$151 to 250 915 215
$250 to 500 2,026 405
$501 to 1,000 3,655 674
$1,001 to 1,500 1,136 204
$1,501 to 2000 409 83
$2001 + 246 52
Total 19,100 10,175

Sources of Cash Income

The sources of cash income for all participants entering the EF&S program are provided in this section. Participants may have multiple sources of cash income.

Income Source Adults Children under 18
AABD 48 55
Alimony/Spousal Support 32 11
Child Support (or DCFS Grant) 438 365
Employment and Training 182 62
Employment Income 4,254 660
Pension/Retirement 116 10
Private Disability Insurance 16 2
Social Security 624 78
SSDI 1,619 166
SSI 2,059 381
Targeted Work Initiative 7 0
Temporary Assistance to Needy Families (TANF) 809 438
Transitional/GA/Earnfare 300 2
Unemployment Benefits 623 68
Veterans Benefits 344 4
Work First/Work Pays 56 1
Worker's Compensation 52 0
Total 11,579 2,303

The sources of cash income for all participants exiting the EF&S program are provided in this section. Participants may have multiple sources of cash income.

Income Source Adults Children under 18
AABD 63 11
Alimony/Spousal Support 45 6
Child Support (or DCFS Grant) 313 293
Employment and Training 186 29
Employment Income 4,324 603
Pension/Retirement 72 0
Private Disability Insurance 7 0
Social Security 321 45
SSDI 1,016 152
SSI 1,537 319
Targeted Work Initiative 2 0
Temporary Assistance to Needy Families (TANF) 721 461
Transitional/GA/Earnfare 176 8
Unemployment Benefits 498 61
Veterans Benefits 221 1
Work First/Work Pays 69 0
Worker's Compensation 33 2
Total 9,604 1,991

Non-Cash Benefits

The non-cash benefits for all participants entering the program are provided in this section during the fiscal year.

Source of Benefits Adults Children under 18
All Kids 455 949
Child Care Assistance 287 331
Emergency Food Assistance 3,479 910
LIHEAP 161 99
Teen Parent Program 18 9
WIC 811 722
Medical Card 5,188 4,994
Other 945 150
Total 10,344 8,164

The non-cash benefits for all participants exiting the program are provided in this section during the fiscal year.

Source of Benefits Adults Children under 18
All Kids 320 625
Child Care Assistance 259 258
Emergency Food Assistance 2,246 999
LIHEAP 194 206
Teen Parent Program 31 12
WIC 695 728
Medical Card 4,198 4,137
Other 1,117 407
Total 9,060 7,372

Supplemental Nutrition Assistance Program/SNAP (formerly known as Food Stamps)

This section provides an unduplicated number of households entering the program during the fiscal year that were either currently enrolled, agency enrolled or ineligible for the program.

  • Enrolled Prior to Entering: 12,633
  • Enrolled After Entering: 9,928
  • Ineligible: 5,506
  • Total Households: 28,067

Shelter Nights and Meals

The total number of shelter nights and meals served to all program participants during the fiscal year is provided in this section.

Shelter Nights

Customer Overnight Shelter Voucher Shelter Transitional Shelter
Male Adults 508,663 4,742 227,585
Male Children 113,315 9,536 246,010
Female Adults 192,155 12,031 341,127
Female Children 84,045 8,370 266,287
Total 898,178 34,679 1,081,009
Grand Total 2,012,866

Shelter Meals

Total Meals Overnight Shelter Voucher Shelter Transitional Shelter
Meals Served, purchased, or vouchered for all participants 1,504,396 20.368 809,942
Grand Total 2,334,706

Supportive Services

The supportive services provided to all program participants during the fiscal year is represented in this section. (Advocacy, Case Management, and Counseling are required supportive services.)

Supportive Services Adults Children
Advocacy 163,655 29,646
Case Management 312,379 42,886
Financial Counseling 87,971 4,224
Life Skills Counseling 172,694 5,991
Other Counseling Services 93,145 13,533
Alcohol Abuse Services 43,381 304
Child Care 8,901 6,670
Children's Services 9,982 15,772
Domestic Violence 3,267 303
Education 26,818 3,825
Employment Services 53,682 897
English as Second Language 2,058 46
Follow-up Services 123,174 13,866
Health/Dental Services 33,775 3,148
HIV/AIDS Related Services 4,068 113
Housing Location/Inspection 31,356 3,903
Mental Health Services 23,836 1,005
Legal Service Referrals 3,529 166
Outreach 169,104 29,102
Substance Abuse Services 46,381 317
Transportation 167,558 14,213
Other 48,499 5,941
Total 1,629,213 195,871
Grand Total 1,825,084

Length of Stay

This section provides information regarding the length of time participants spent in the Emergency Food and Shelter Program before leaving.

Time Period Adults Children under age 18
Less than 1 month 10,781 5,177
1 to 2 months 3,778 2,100
3 to 6 months 3,225 2,134
7 to 12 months 1,086 551
13 to 24 months 189 163
25 months to 3 years 39 50
4 to 5 years 2 0
6 to 7 years 0 0
8 to 10 years 0 0
10 years and up 0 0
Total 19,100 10,175

Reason for Departure

Upon departing from the Emergency Food and Shelter Program, the following reasons were cited for all program participants during the fiscal year.

Reason for Departure Adults Children under age 18
Left for housing opportunity before completing program 2,466 1,067
Completed program 4,585 3,011
Non-payment of rent/occupancy charge 53 23
Non-compliance with project 1,454 643
Criminal activity/destruction of property/violence 296 236
Reached maximum allowable time allowed in project 867 490
Needs could not be met by project 167 100
Disagreement with rules/persons 746 566
Death 17 1
Voucher funds exhausted 305 248
Voluntary departure 5,106 2,851
Unknown/disappeared 2,277 654
Other 761 285
Total 19,100 10,175

Destination

This section provides the destination of the participants who exited the program during the fiscal year and were not expected to return.

Housing Type Adults Children under age 18
Permanent Housing Destination
Rental House or apartment (non-subsidized) 2,591 1,839
Public Housing 349 324
Section 8 158 187
Shelter Plus Care 56 31
HOME subsidized house or apartment 96 61
Other subsidized house or apartment 573 525
Homeownership 147 92
Moved in with family or friends 2,154 1,259
Transitional Housing Destination (24 months or less)
Transitional Opportunity 924 1,018
Moved in with family or friends 1,911 977
Institutional Destination
Psychiatric Hospital 78 18
Inpatient alcohol or other drug treatment facility 209 10
Jail/prison 133 15
Other Emergency Shelter Destination
Emergency shelter 1,080 330
Other supportive shelter 174 73
Places not meant for human habitation (e.g. street) 393 12
Other 711 443
Unknown
Unknown Destination 7,363 2,961
Total 19,100 10,175

Reason for Turnaway

This section provides information regarding the reason participants were turned away from the Emergency Food and Shelter Program during the fiscal year.

Reason for Turnaway Adults Children under age 18
No Vacancy 13,124 8,860
No Voucher Funds 117 132
Inappropriate for Shelter 4,404 3,187
Refused to accept rules 1,427 178
Found other shelter 1,069 566
Total 20,141 12,923

Turnaway Referral

This section provides an duplicated count of the referrals made to program participants for other social services that were turned away from the Emergency Food and Shelter Program:  20,151.

Primary Language

The Department is attempting to identify the total number of program participants that could not speak or read English. A duplicated count of the primary language for these program participants is provided in this section.

Category Number of Adults Number of Children
Albanian 2 1
Arabic 11 9
Bosnian 0 0
Bulgarian 1 0
Chinese 2 0
French 6 0
Gujarati 0 0
Hindi 1 1
Khmer 0 0
Korean 4 1
Lithuanian 0 0
Mandingo 0 0
Polish 72 2
Romanian 4 1
Russian 9 0
Spanish 767 122
Ukrainian 5 0
Urdu 3 5
Uzbek 0 0
Vietnamese 2 0
Other - Asian 9 5
Other - African 12 6
Other - Central and South American 1 0
Other - European 2 1
Other - India 0 0
Other 14 0
Total 927 154