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Highlight the Need to Identify, Assess, and Reduce Inefficiencies' 
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United States Government Accountability Office:
GAO: 

Report to Congressional Committees: 

May 2012: 

Homelessness: 

Fragmentation and Overlap in Programs Highlight the Need to Identify, 
Assess, and Reduce Inefficiencies: 

GAO-12-491: 

GAO Highlights: 

Highlights of GAO-12-491, a report to congressional committees. 

Why GAO Did This Study: 

Federal programs for those experiencing or at risk for homelessness 
generally are designed to provide housing assistance and other 
services such as health care, job training, or food assistance. This 
report responds to the statutory requirement that GAO identify federal 
programs, agencies, offices, and initiatives that have duplicative 
goals or activities and addresses (1) the number of and funding levels 
for federal homelessness programs and the extent to which 
fragmentation, overlap, and duplication exists; (2) whether the 
programs have been evaluated; and (3) actions of the Interagency 
Council and federal agencies to coordinate efforts and the extent to 
which the federal strategic plan to prevent and end homelessness is an 
effective strategy. To address these objectives, GAO sent 
questionnaires to10 federal agencies and obtained and analyzed data 
for a range of programs. 

What GAO Found: 

Homelessness programs are fragmented across multiple agencies and some 
show evidence of overlap. In fiscal year 2010, eight federal agencies 
obligated roughly $2.8 billion to administer 26 homelessness programs. 
Three agencies—-the Departments of Health and Human Services (HHS), 
Housing and Urban Development (HUD), and Veterans Affairs (VA)-—are 
responsible for the majority of programs and dollars, 22 of 26 
programs, and 89 percent of total funds. GAO found that these agencies 
and the Department of Labor (Labor) have multiple programs that offer 
similar services to similar beneficiaries. Fragmentation of services 
and overlap in some programs is partly due to their legislative 
creation and partly due to programs evolving to offer services that 
meet the variety of needs of persons experiencing homelessness. 
Fragmentation and overlap can lead to inefficient use of resources. 
For example, both HHS and VA have programs that provide similar 
services, but each agency separately manages its programs under 
different administrative units. In addition, some local service 
providers told us that managing multiple applications and reporting 
requirements was burdensome, difficult, and costly. Moreover, 
according to providers, persons experiencing homelessness have 
difficulties navigating services that are fragmented across agencies. 

While almost all targeted programs maintain performance information 
(including data on the number of homeless served), few targeted 
programs have conducted evaluations to assess how effectively the 
programs are achieving their objectives. While performance information 
can be helpful for monitoring whether programs were achieving desired 
results, evaluations allow for comprehensive assessments. According to 
GAO’s questionnaire, 2 of the 26 programs reported they had a program 
evaluation within the last 5 years. Information from program 
evaluations can help agencies fully assess what is working and how 
improvements can be made. Moreover, understanding program performance 
and effectiveness is key to determining in which programs and 
interventions to strategically invest limited federal funds. 

The U.S. Interagency Council on Homelessness (Interagency Council) is 
required to coordinate the federal response to homelessness and has 
taken several steps to coordinate efforts and promote initiatives 
across federal agencies. Federal coordination efforts have increased 
in recent years and included issuing the first federal strategic plan, 
increasing coordination at the state and local levels by focusing on 
the creation of state interagency councils on homelessness, and taking 
steps to develop a common vocabulary for discussing homelessness and 
related terms. The strategic plan serves as a useful and necessary 
step in increasing agency coordination and incorporates some elements 
of an effective strategy, but lacks key characteristics desirable in a 
national strategy. For example, the plan does not list priorities or 
milestones and does not discuss resource needs or assign clear roles 
and responsibilities to federal partners. In order for the Interagency 
Council and its members to effectively translate the goals and 
objectives of the plan into actions and measure their own progress in 
implementing them, these elements must be made transparent to help 
ensure accountability and measure the plan’s progress. 

What GAO Recommends: 

The Interagency Council and the Office of Management and Budget––in 
conjunction with HHS, HUD, Labor, and VA, should further analyze the 
degree and effects of overlap and fragmentation. VA agreed with this 
recommendation. HHS, HUD, Labor, and the Council did not explicitly 
agree or disagree. We also recommended that the Council incorporate 
additional elements into updates to the federal strategic plan or in 
implementation and planning documents. The Council stated it has been 
setting priorities and measuring progress, but was unable to provide 
documentation. GAO maintains its position and that the implementation 
of the federal strategic plan be made more transparent. 

View [hyperlink, http://www.gao.gov/products/GAO-12-491]. For more 
information, contact Alicia Puente Cackley at 
(202) 512-8678 or cackleya@gao.gov. 

[End of section] 

Contents: 

Letter: 

Background: 

Homelessness Programs Address a Variety of Needs, but Result in 
Fragmentation and Overlap of Services: 

Programs Maintain Performance Information, but Program Evaluations Are 
Limited: 

While Federal Coordination Efforts Have Increased, Strategic Plan 
Could Be Improved: 

Conclusions: 

Recommendations for Executive Action: 

Agency Comments and Our Evaluation: 

Appendix I: Objectives, Scope, and Methodology: 

Appendix II: Mainstream Programs That Persons Experiencing 
Homelessness Can Access: 

Appendix III: Performance Information for 26 Targeted Programs: 

Appendix IV: Comments from the Department of Health and Human Services: 

Appendix V: Comments from the Department of Homeland Security: 

Appendix VI: Comments from the Department of Housing and Urban 
Development: 

Appendix VII: Comments from the Department of Labor: 

Appendix VIII: Comments from the Department of Veterans Affairs: 

Appendix IX: Comments from the United States Interagency Council on 
Homelessness: 

Appendix X: GAO Contact and Staff Acknowledgments: 

Tables: 

Table 1: Targeted Federal Homelessness Programs and Descriptions, 
Fiscal Year 2011: 

Table 2: Federal Obligations for 26 Homelessness Programs, Fiscal Year 
2010: 

Table 3: Summary of Desirable Characteristics for a National Strategy: 

Table 4: Mainstream Programs That Persons Experiencing Homelessness 
Can Access: 

Table 5: Performance Information Collected, by Program: 

Figures: 

Figure 1: Percentage of Obligations for Homelessness Programs by 
Agency, Fiscal Year 2010: 

Figure 2: Fragmentation of Services in Homelessness Programs across 
Agencies, Fiscal Year 2011: 

Figure 3: Populations Served by Homelessness Programs, Fiscal Year 
2011: 

Figure 4: Overlap in Program Services to the General Homeless or At-
Risk Population, Fiscal Year 2011: 

Figure 5: Overlap in Program Services to Homeless Veterans, Fiscal 
Year 2011: 

Figure 6: Overlap in Program Services to Homeless Children and Youth, 
Fiscal Year 2011: 

Figure 7: Extent to Which the Strategic Plan to Prevent and End 
Homelessness Addresses Characteristics of an Effective National 
Strategy, as of May 2012: 

Abbreviations: 

Education: Department of Education: 

FEMA: Federal Emergency Management Administration: 

GSA: General Services Administration: 

HEARTH Act: Homeless Emergency Assistance and Rapid Transition to 
Housing Act: 

HHS: Department of Health and Human Services: 

HMIS: Homelessness Management Information Systems: 

HUD: Department of Housing and Urban Development: 

Interagency Council: U.S. Interagency Council on Homelessness: 

Justice: Department of Justice: 

Labor: Department of Labor: 

VA: Department of Veterans Affairs: 

[End of section] 

United States Government Accountability Office: 
Washington, DC 20548: 

May 10, 2012: 

The Honorable Tim Johnson: 
Chairman: 
The Honorable Richard C. Shelby: 
Ranking Member: 
Committee on Banking, Housing, and Urban Affairs: 
United States Senate: 

The Honorable Spencer Bachus: 
Chairman: 
The Honorable Barney Frank: 
Ranking Member: 
Committee on Financial Services: 
House of Representatives: 

In recent years, increasing attention has been paid to the issue of 
homelessness, in part because the economic downturn has placed more 
individuals and households at risk for homelessness. Evidence suggests 
that the number of those entering shelters has remained constant, but 
there has been an increase in the number of people living with family 
or friends. According to Department of Housing and Urban Development 
(HUD) estimates, on a single night in January 2011, approximately 
636,000 people experienced homelessness. A number of federal agencies 
and programs specifically target assistance for those persons 
experiencing homelessness or at risk for homelessness, while other 
programs, referred to as “mainstream,” more broadly assist low-income 
populations. Both targeted and mainstream programs can offer housing 
assistance, and supportive services such as food assistance, health 
care, or job training.[Footnote 1] As we previously reported, the wide 
range of programs that federal agencies offer has resulted in a 
fragmented service system; that is, more than one federal agency is 
involved in the same broad area of national interest.[Footnote 2] A 
fragmented service system could lead to some programs offering similar 
services and serving similar populations, and thus to inefficiencies 
in program administration and service delivery across the federal 
government. As a result, effective coordination of fragmented service 
systems is essential. 

This report responds to the statutory requirement that GAO identify 
and annually report on federal programs, agencies, offices, and 
initiatives that have duplicative goals or activities.[Footnote 3] It 
addresses (1) the number of and funding levels for federal 
homelessness programs and the extent to which fragmentation, overlap, 
and duplication exists; (2) whether the programs have been evaluated; 
and (3) actions of the U.S. Interagency Council on Homelessness 
(Interagency Council) and federal agencies to coordinate federal 
efforts and the extent to which the federal strategic plan to prevent 
and end homelessness is an effective strategy. 

To gather information on federal homelessness programs and assess 
fragmentation, overlap, and duplication, we developed structured 
questionnaires and obtained information from 10 federal agencies that 
administer programs for persons experiencing homelessness. We 
identified programs that were specifically designed to assist the 
homeless (targeted) or programs that more broadly assist low-income 
populations but which people experiencing homelessness may access 
(mainstream).[Footnote 4] We defined a targeted program as one that 
provided assistance exclusively to those persons experiencing 
homelessness or at risk for homelessness in fiscal year 2011. We 
defined a mainstream program as one that (1) was in operation as of 
fiscal year 2011, (2) included persons experiencing homelessness or at 
risk for homelessness as part of the population served, (3) provided 
services that benefit the homeless that are similar or complementary 
to those offered by targeted programs, and that (4) agency officials 
identified to be critical in meeting the needs of the homeless. We 
ultimately obtained and analyzed data for 26 targeted and 62 
mainstream programs. The structured questionnaires asked questions 
about program goals and objectives, target populations, services 
offered, performance information and evaluations, and funding. To help 
assess the reliability of the information we received, we incorporated 
questions about the reliability of the programs’ data and financial 
systems, conducted internal reliability checks, and conducted follow-
up as necessary with agency staff. While we did not verify all 
responses, we determined that the data used in our report were 
sufficiently reliable for our purposes. We excluded programs that did 
not meet our definitions; for example, this report does not include 
all mainstream programs that can serve persons experiencing 
homelessness because they did not meet all the criteria in our 
definition. To gather additional information about the programs, we 
met with agency officials who oversee the programs and conducted three 
site visits to obtain information on how local communities implement 
programs and deliver services (New York, New York; San Francisco, 
California; and Washington, D.C.). We selected these locations based 
on the variety of targeted programs, size of the homeless population, 
and geography. Finally, we reviewed relevant federal laws and 
regulations as well as our previous work on homelessness programs. 
[Footnote 5] To review the coordination efforts of the Interagency 
Council and federal agencies and the extent to which the national 
strategic plan addresses the characteristics of an effective national 
strategy, we analyzed the council’s coordination responsibilities, 
obtained examples of coordination actions from the council and federal 
agencies, interviewed agency officials, and analyzed the strategy. We 
assessed the strategy to determine how well it addressed the six 
desirable characteristics of an effective national strategy that we 
developed in previous work.[Footnote 6] 

We conducted this performance audit from June 2011 through May 2012, 
in accordance with generally accepted government auditing standards. 
Those standards require that we plan and perform the audit to obtain 
sufficient, appropriate evidence to provide a reasonable basis for our 
findings and conclusions based on our audit objectives. We believe 
that the evidence obtained provides a reasonable basis for our 
findings and conclusions based on our audit objectives. See appendix I 
for a more detailed description of our scope and methodology. 

Background: 

Role of Interagency Council and Recent Changes: 

Congress established the Interagency Council in 1987 under the 
McKinney-Vento Homeless Assistance Act as an independent establishment 
to provide federal leadership for activities to assist homeless 
families and individuals.[Footnote 7] Initially the main functions of 
the council revolved around using public resources and programs in a 
more coordinated manner to meet the needs of those experiencing 
homelessness. From 1994 to 2000 the council operated as a working 
group of the White House Domestic Policy Council. An executive 
director, who is appointed by the council members and reports directly 
to the Interagency Council's chairperson, manages the daily activities 
of the council. Since 1987, there have been several executive 
directors with the most recent appointed in November 2009. 
Additionally, the council elects a chairperson and a vice chairperson 
from its members and the positions rotate among member agencies 
annually. The current members of the Interagency Council include the 
heads of 19 departments and agencies.[Footnote 8] 

The most recent reauthorization of the council occurred in 2009 when 
Congress enacted the Homeless Emergency Assistance and Rapid 
Transition to Housing Act (HEARTH Act).[Footnote 9]The HEARTH Act 
included several new responsibilities and directed the council to 
coordinate the federal response to homelessness and create a national 
partnership at every level of government and with the private sector 
to reduce and end homelessness. The HEARTH Act also requires the 
council to take several actions related to coordination and 
information dissemination, and includes various reporting 
requirements. For example, the Interagency Council must: 

* develop and annually update a federal strategic plan to end 
homelessness; 

* review all federal activities and programs to assist homeless 
individuals; 

* take actions that may be necessary to reduce duplication among 
federal homelessness programs and activities; 

* monitor, evaluate, and recommend improvements in programs and 
activities to assist homeless individuals conducted by federal 
agencies, state and local governments, and private voluntary 
organizations; 

* provide professional and technical assistance to states, local 
governments, and other public and private nonprofit organizations; 

* encourage the creation of State Interagency Councils on Homelessness 
and the formulation of jurisdictional 10-year plans to end 
homelessness at state, city, and county levels; 

* obtain from federal agencies resources for which persons 
experiencing homelessness may be eligible and improvements to ensure 
access and develop mechanisms to ensure access by persons experiencing 
homelessness to programs for which they are eligible, and verify 
collaboration among entities within communities; 

* conduct research and evaluation related to its functions; 

* develop joint federal agency and other initiatives to fulfill the 
goals of the agency and collect and disseminate information relating 
to homeless individuals; 

* prepare annual reports; 

* develop constructive alternatives to criminalizing homelessness; and: 

* convene a meeting of experts to discuss all issues relevant to the 
definitions of "homeless" and the extent to which the differences in 
such definitions create barriers for individuals in accessing services 
and issue transcripts and recommendations.[Footnote 10] 

In fiscal year 2012, Congress appropriated $3.3 million for the 
Interagency Council to carry out its responsibilities. In that year, 
the council had 18 full-time employees, with staff based in 
Washington, D.C. and four regional positions. 

Definitions of Homelessness: 

The HEARTH Act changed the definition of homelessness for several 
federal programs. As described in our June 2010 report, federal 
programs define homelessness differently.[Footnote 11] The HEARTH Act 
broadened the general definition of homelessness because it expanded 
who is eligible for various HUD-funded homeless assistance programs. 
For example, the act adds a new category of homelessness, 
unaccompanied youth and families with children and youth who are 
defined as homeless under other federal statutes (such as the Runaway 
and Homeless Youth Act and the Head Start Act).[Footnote 12] As a 
result, persons meeting other federal statutes' broader definitions of 
homelessness also can be eligible for HUD programs. 

Our Work on Fragmentation, Overlap, and Duplication: 

In 2010, Congress directed us to identify programs, agencies, offices, 
and initiatives with duplicative goals and activities within 
departments and governmentwide and report annually to Congress. 
[Footnote 13] In March 2011 and February 2012, we issued our first two 
annual reports to Congress in response to this requirement.[Footnote 
14] The annual reports describe areas in which we found evidence of 
fragmentation, overlap, or duplication among federal programs. Using 
the framework established in the reports, the key terms are defined as 
follows: 

* Fragmentation occurs when more than one federal agency (or more than 
one organization within an agency) is involved in the same broad area 
of national interest. 

* Overlap occurs when multiple programs have similar goals and 
activities, and offer similar services to similar beneficiaries. 

* Duplication occurs when two or more agencies or programs are 
engaging in the same activities or providing the same services to the 
same beneficiaries. 

For homelessness programs, we noted in the March 2011 report that 
better coordination of programs could minimize inefficiencies that may 
stem from fragmentation and overlap. We discussed the work of the 
Interagency Council and noted the development of its strategic plan. 
We concluded that while federal agencies have taken some positive 
steps to improve coordination of programs and reduce fragmentation and 
overlap, more needed to be done. 

Homelessness Programs Address a Variety of Needs, but Result in 
Fragmentation and Overlap of Services: 

Eight agencies--HHS, HUD, the Departments of Education (Education), 
Labor (Labor), Justice (Justice), Veterans Affairs (VA), the Federal 
Emergency Management Agency (FEMA), and the General Services 
Administration (GSA)--administered 26 targeted homelessness programs 
in fiscal year 2011.[Footnote 15] That is, they administered programs 
that exclusively assisted persons who were homeless or at risk for 
homelessness (see table 1). However, three agencies--HHS, HUD, and VA-
-were responsible for the majority of these programs (22 of 26). HUD 
was the primary agency providing funding for housing, such as 
emergency shelters, permanent housing, and transitional housing. HHS 
and VA typically operated programs or provided funding for supportive 
services such as health care, substance abuse treatment, and 
employment assistance. However, most VA programs and services are only 
available to men and women who have served in the military and have 
been discharged under honorable or general circumstances. Of the 26 
programs, three programs provide surplus federal properties to 
eligible homeless service providers and one program provides personal 
property to veterans experiencing homelessness. 

Table 1: Targeted Federal Homelessness Programs and Descriptions, 
Fiscal Year 2011: 

Agency: VA (11); 

Program name: Domiciliary Care for Homeless Veterans Program; 
Description: Provides residential treatment to homeless veterans with 
health care and social-vocational deficits. 

Program name: Homeless Providers Grants and Per Diem Program; 
Description: Awards grants to community-based agencies for 
transitional housing, outreach, rehabilitative services, and 
vocational counseling and training; and offers per diem payments. 

Program name: Health Care for Homeless Veterans Program; 
Description: Performs outreach to identify homeless veterans eligible 
for VA services and assists them in accessing appropriate health care 
and benefits. 

Program name: Homeless Veterans Dental Program; 
Description: Provides dental care to eligible homeless veterans. 

Program name: National Call Center for Homeless Veterans; 
Description: Assists homeless veterans and their families through a 24-
hour hotline. 

Program name: Stand Downs; 
Description: Conducts 1-to 3-day outreach events that involve a broad 
range of community providers. Services include food, clothing, 
benefits assistance, linkages to shelter and treatment programs, 
medical and mental health screenings, and referrals. 

Program name: Acquired Property Sales for Homeless Providers[A]; 
Description: Offers discounted prices on VA properties acquired 
through foreclosure to qualified nonprofit organizations that will 
offer the properties as shelters to homeless veterans. 

Program name: Excess Property for Homeless Veterans Initiative; 
Description: Helps distribute excess personal property, such as hats, 
parkas, footwear, and other items. 

Program name: Regional Office Homeless Veterans Outreach Activities; 
Description: Provides information and assistance on VA benefits and 
services through outreach. 

Program name: Homeless Veteran Supported Employment Program; 
Description: Provides vocational and employment services. 

Program name: Preventing Veteran Homelessness through Mortgage 
Foreclosure Assistance; 
Description: Provides financial counseling for veterans with VA-
guaranteed or conventional loans to help ensure that veterans receive 
consideration of all possible options to avoid foreclosure. 

Agency: HHS (5); 

Program name: Projects for Assistance in Transition from Homelessness; 
Description: Provides grants to state and territories for community-
based outreach, mental health, substance abuse, and other supportive 
services, including limited housing to individuals with serious mental 
illness who are experiencing or at risk of homelessness. 

Program name: Runaway and Homeless Youth Programs[B]; 
Description: Provides temporary emergency shelter and permanent 
housing for youths and residential services to help them transition to 
self-sufficiency. 

Program name: Health Care for the Homeless; 
Description: Provides outreach to homeless individuals and families to 
provide primary care and substance abuse services. 

Program name: Grants for the Benefit of Homeless Individuals; 
Description: Provides grants to communities to expand and strengthen 
their treatment services for persons who are homeless or at risk of 
homelessness with mental health disorders, substance use disorders, or 
co-occurring mental and substance use disorders in coordination with 
stable housing programs and resources. 

Program name: Services in Supportive Housing Grants; 
Description: Provides treatment and supportive services to people 
experiencing chronic homelessness and severe mental illness or co-
occurring mental and substance abuse disorders in coordination with 
permanent supportive housing programs and resources. 

Agency: HUD (3); 

Program name: Homeless Assistance Grants[C]; 
Description: Provides emergency shelter facilities, transitional and 
permanent housing with supportive services, or rental assistance for 
homeless individuals or homeless persons with disabilities. 

Program name: Homelessness Prevention and Rapid Re-Housing Program; 
Description: Provides homelessness prevention assistance and 
assistance to rapidly re-house persons who are homeless. 

Program name: Base Realignment and Closure Program[A]; 
Description: Provides surplus properties, at no cost to 
representatives of the homeless, for homeless assistance use. 

Agency: Education (1); 
Program name: Education for Homeless Children and Youths; 
Description: Helps ensure that homeless children and youths have equal 
access to free and appropriate public education and facilitates their 
enrollment, attendance, and success in school. 

Agency: FEMA (1); 
Program name: Emergency Food and Shelter Program; 
Description: Supplements and expands ongoing efforts to provide 
shelter, food, and supportive services to needy families and 
individuals. 

Agency: Justice (1); 
Program name: Transitional Housing Assistance Grants for Victims of 
Sexual Assault, Domestic Violence, Dating Violence, and Stalking 
Program; 
Description: Provides transitional housing, housing assistance, and 
supportive services to those fleeing domestic violence, dating 
violence, sexual assault, or stalking; and for whom emergency shelter 
services or other crisis intervention services are not sufficient. 

Agency: Labor (1); 
Program name: Homeless Veterans Reintegration Program; 
Description: Provides services to assist in reintegrating homeless 
veterans into meaningful employment. 

Agency: Multiple agencies (3); 

Program name: HUD-VA Supportive Housing (HUD-VASH)[D]; 
Description: Provides section 8 Housing Choice Vouchers and case 
management and supportive services to eligible homeless veterans. 

Program name: Veterans Homeless Prevention Demonstration Program[E]; 
Description: Offers early intervention homelessness prevention, 
primarily to veterans returning from wars in Iraq and Afghanistan. 

Program name: Federal Surplus Real Property (Title V)[A,F]; 
Description: Provides surplus federal properties that can be used to 
help homeless persons. 

Source: GAO analysis of agency information. 

Note: VA staff told us the Supportive Services for Veteran Families 
Program made grant agreements in September 2011, but stated no 
services were provided prior to the end of the fiscal year. VA staff 
did not complete a questionnaire for this program because they told us 
the program was not in operation in fiscal year 2011. Our review 
excludes this program. 

[A] These programs provide different properties to eligible homeless 
service providers but do not directly provide services for persons 
experiencing homelessness. 

[B] Runaway and Homeless Youth Programs include the Basic Center 
Program, Transitional Living Program, Street Outreach Program, and 
Maternity Group Home Program. 

[C] Homeless Assistance Grants include the Emergency Solutions Grant 
Program, Supportive Housing Program, Shelter Plus Care Program, and 
Single Room Occupancy Program. 

[D] HUD-VASH is jointly administered by HUD and VA. 

[E] The demonstration program is jointly administered by HUD, Labor, 
and VA. 

[F] The Federal Surplus Real Property (Title V) program is jointly 
administered by HHS, HUD, and GSA. 

[End of table] 

Multiple Agencies Administered 26 Targeted Homelessness Programs and 
Obligated $2.8 Billion in Fiscal Year 2010: 

According to the most recently available data (fiscal year 2010), 
federal agencies reported obligations of $2.8 billion for the 26 
targeted programs. Individual program obligations ranged from $475,000 
to $1.4 billion (see table 2).[Footnote 16] HUD's Homeless Assistance 
Grants, the largest program, accounted for 50 percent of overall 
federal spending commitments. Eight programs had obligations of more 
than $100 million each, and 10 programs had obligations between $1 
million and $100 million. 

Table 2: Federal Obligations for 26 Homelessness Programs, Fiscal Year 
2010: 

Agency: HUD; 
Program: Homeless Assistance Grants; 
Fiscal year 2010 obligations: $1,379,155,000; 
Assistance through grants: [Check]. 

Agency: FEMA; 
Program: Emergency Food and Shelter Program; 
Fiscal year 2010 obligations: $200,000,000; 
Assistance through grants: [Check]. 

Agency: HHS; 
Program: Health Care for the Homeless; 
Fiscal year 2010 obligations: $185,066,000; 
Assistance through grants: [Check]. 

Agency: VA; 
Program: Domiciliary Care for Homeless Veterans Program[A]; 
Fiscal year 2010 obligations: $175,979,000; 
Assistance through grants: [Empty]. 

Agency: VA; 
Program: Homeless Providers Grants and Per Diem Program; 
Fiscal year 2010 obligations: $175,057,000; 
Assistance through grants: [Check]. 

Agency: HUD and VA; 
Program: HUD-VA Supportive Housing (HUD-VASH)[B]; 
Fiscal year 2010 obligations: $147,046,192; 
Assistance through grants: [Empty]. 

Agency: HHS; 
Program: Runaway and Homeless Youth Programs; 
Fiscal year 2010 obligations: $115,705,000; 
Assistance through grants: [Check]. 

Agency: VA; 
Program: Health Care for Homeless Veterans Program; 
Fiscal year 2010 obligations: $109,727,000; 
Assistance through grants: [Empty]. 

Agency: Education; 
Program: Education for Homeless Children and Youths; 
Fiscal year 2010 obligations: 65,427,000; 
Assistance through grants: [Check]. 

Agency: HHS; 
Program: Projects for Assistance in Transition from Homelessness; 
Fiscal year 2010 obligations: $65,047,000; 
Assistance through grants: [Check]. 

Agency: Labor; 
Program: Homeless Veterans Reintegration Program; 
Fiscal year 2010 obligations: $35,888,000; 
Assistance through grants: [Check]. 

Agency: HHS; 
Program: Grants for the Benefit of Homeless Individuals; 
Fiscal year 2010 obligations: $35,560,000; 
Assistance through grants: [Check]. 

Agency: HHS; 
Program: Services in Supportive Housing Grants; 
Fiscal year 2010 obligations: $32,264,000; 
Assistance through grants: [Check]. 

Agency: VA; 
Program: Preventing Veteran Homelessness through Mortgage Foreclosure 
Assistance; 
Fiscal year 2010 obligations: $29,565,000; 
Assistance through grants: [Empty]. 

Agency: VA; 
Program: Homeless Veterans Dental Program; 
Fiscal year 2010 obligations: $17,530,000; 
Assistance through grants: [Empty]. 

Agency: Justice; 
Program: Transitional Housing Assistance Grants for Victims of Sexual 
Assault, Domestic Violence, Dating Violence, and Stalking Program; 
Fiscal year 2010 obligations: $15,304,802; 
Assistance through grants: [Check]. 

Agency: VA; 
Program: National Call Center for Homeless Veterans; 
Fiscal year 2010 obligations: $2,410,000; 
Assistance through grants: [Empty]. 

Agency: VA; 
Program: Regional Office Homeless Veterans Outreach Activities; 
Fiscal year 2010 obligations: $1,908,000; 
Assistance through grants: [Empty]. 

Agency: VA; 
Program: Stand Downs[C]; 
Fiscal year 2010 obligations: $786,000; 
Assistance through grants: [Empty]. 

Agency: HHS, HUD, and GSA; 
Program: Federal Surplus Real Property (Title V)[D]; 
Fiscal year 2010 obligations: $613,000; 
Assistance through grants: [Empty]. 

Agency: VA; 
Program: Excess Property for Homeless Veterans Initiative; 
Fiscal year 2010 obligations: $475,000; 
Assistance through grants: [Empty]. 

Agency: HUD; 
Program: Homelessness Prevention and Rapid Re-Housing Program[E]; 
Fiscal year 2010 obligations: 0; 
Assistance through grants: [Check]. 

Agency: HUD; 
Program: Base Realignment and Closure Program[F]; 
Fiscal year 2010 obligations: 0; 
Assistance through grants: [Empty]. 

Agency: VA; 
Program: Acquired Property Sales for Homeless Providers[G]; 
Fiscal year 2010 obligations: 0; 
Assistance through grants: [Empty]. 

Agency: VA; 
Program: Homeless Veteran Supported Employment Program[H]; 
Fiscal year 2010 obligations: 0; 
Assistance through grants: [Empty]. 

Agency: HUD, Labor, and VA; 
Program: Veterans Homeless Prevention Demonstration Program[H]; 
Fiscal year 2010 obligations: 0; 
Assistance through grants: [Check]. 

Agency: Total; 
Fiscal year 2010 obligations: $2,790,512,994; 
Assistance through grants: 13 programs. 

Source: Each agency reported obligation amounts to GAO. 

[A] VA told us the amount represents direct and indirect costs 
including veterans' total health care costs while in the program. 

[B] HUD and VA reported obligations of $76 and $71 million, 
respectively. 

[C] Labor told us they have been involved in Stand Downs as well, but 
any funds obligated from Labor are included in the reported amount for 
the Homeless Veterans Reintegration Program. 

[D] HUD told us no funds were obligated and the only costs incurred 
were for a contractor to update a data system. Therefore, the figure 
includes obligations as reported by HHS and GSA only. 

[E] HUD told us the funds for this program, roughly $1.5 billion, were 
obligated in fiscal year 2009. 

[F] HUD told us no funds were awarded or contracted for this program. 

[G] VA reported no obligations because the program receives foreclosed 
properties and sells a minimal number to nonprofit organizations that 
provide shelter to veterans and their families. 

[H] VA and HUD reported that the program was new and no funds were 
obligated in fiscal year 2010. 

[End of table] 

The majority of obligations were committed for grants--13 of the 26 
programs offered grants, totaling about $2.3 billion in obligations 
for fiscal year 2010.[Footnote 17] These grants were generally 
distributed on a formula or a project basis. Formula grants are 
noncompetitive awards based on a predetermined formula. Project grants 
award funds for fixed periods of time for specific projects. 

HUD, HHS, and VA administered most of the targeted programs and 
accounted for 89 percent of the federal funds obligated (see figure 1). 

Figure 1: Percentage of Obligations for Homelessness Programs by 
Agency, Fiscal Year 2010: 

[Refer to PDF for image: pie-chart] 

HUD: 52%; 
VA: 21%; 
HHS: 16%; 
FEMA: 7%; 
Education: 2%; 
Labor: 1%; 
Justice: 1%; 
GSA: 0%. 

Source: GAO analysis of agency obligation data. 

Note: Obligations for programs administered by two or more agencies 
(for example, the HUD-VASH program) are included in each agency's 
portion of the pie chart. For instance, HUD's obligations for the HUD-
VASH program are included in the 52 percent. 

[End of figure] 

Finally, in addition to targeted programs, several federal agencies 
provide assistance through mainstream programs--programs that broadly 
assist low-income populations. For example, the Temporary Assistance 
for Needy Families, Head Start, and Public Housing programs are 
designed for low-income populations but provide services to people 
experiencing homelessness as well. See appendix II for a list of 
mainstream programs, descriptions, and other information.[Footnote 18] 

Evidence Suggests Fragmentation and Some Overlap: 

Figure 2 shows that multiple agencies manage several similar 
homelessness programs, suggesting fragmentation and some overlap. 
Further, agencies deliver several different types of services to 
persons experiencing homelessness. For example, HUD not only 
administers housing assistance, but also provides funding for mental 
health care, substance abuse treatment, and employment services. 
Similarly, HHS and VA administer programs that provide housing and 
employment assistance. Fragmentation and overlap in some programs have 
been caused in part by their legislative creation as separate programs 
under the jurisdiction of several agencies. This fragmentation of 
services may be advantageous because agencies can tailor programs to 
suit specific needs of persons experiencing homelessness. 
Additionally, according to HHS, fragmented services are the result of 
providing comprehensive care to a population with complex, varying 
needs. However, fragmentation can also lead to inefficiencies. 

Fragmentation of services was most apparent in three agencies--HHS, 
HUD, and VA--that administered most of the programs and also offered 
the most types of services (see figure 2). In particular, service 
fragmentation was most apparent for transportation and case 
management. According to agency staff, case management is necessary in 
most programs to provide linkages and referrals to other services as 
needed. In contrast, fragmentation was least apparent for permanent 
housing, income support, primary health care, and dental care services. 

Figure 2: Fragmentation of Services in Homelessness Programs across 
Agencies, Fiscal Year 2011: 

[Refer to PDF for image: illustrated table] 

Service: Permanent housing; 
Agency/Entity: HUD. 

Service: Transitional housing; 
Agency/Entity: HHS; VA; HUD; Justice; FEMA. 

Service: Emergency shelter; 
Agency/Entity: HHS; VA; HUD; FEMA. 

Service: Food assistance; 
Agency/Entity: HHS; VA; HUD; Justice; FEMA. 

Service: Primary health care; 
Agency/Entity: HHS; VA. 

Service: Dental care; 
Agency/Entity: HHS; VA. 

Service: Mental health care; 
Agency/Entity: HHS; VA; HUD; Justice.   

Service: Substance abuse treatment; 
Agency/Entity: HHS; VA; HUD; Justice. 

Service: Education; 
Agency/Entity: HHS; VA; Justice; Labor; Education. 

Service: Employment assistance; 
Agency/Entity: HHS; VA; HUD; Justice; Labor. 

Service: Income support; 
Agency/Entity: HHS. 

Service: Homeless prevention; 
Agency/Entity: HHS; VA; HUD; FEMA. 

Service: Case management; 
Agency/Entity: HHS; VA; HUD; Justice; Labor; Education. 

Service: Outreach; 
Agency/Entity: HHS; VA; HUD; Labor; Education. 

Service: Transportation; 
Agency/Entity: HHS; VA; HUD; Justice; Labor; FEMA; Education. 

Service: Property[A]; 
Agency/Entity: HHS; VA; HUD;  GSA. 

Source: GAO analysis of questionnaire responses. 

[A] Programs provide different properties to eligible homeless service 
providers that can be used to help persons experiencing homelessness. 

[End of figure] 

Some programs served the general homeless population while others 
assisted specific populations (see figure 3). For example, 17 of the 
26 targeted programs served specific populations, most commonly 
veterans (14 programs). According to questionnaire responses, while 
the programs exclusively served specific populations, the individuals 
served also may have had additional characteristics such as substance 
abuse disorders or disabilities. As stated previously, most VA 
programs and services are only available to men and women who have 
served in the military and have been discharged under honorable or 
general circumstances. 

Figure 3: Populations Served by Homelessness Programs, Fiscal Year 
2011: 

[Refer to PDF for image: vertical bar graph] 

Population served: Veterans; 
Number of programs: 14. 

Population served: General homeless or at-risk population; 
Number of programs: 9. 

Population served: Children and youth; 
Number of programs: 2. 

Population served: Victims of domestic violence; 
Number of programs: 1. 

Source: GAO analysis of questionnaire responses. 

Note: We included programs that assist chronically homeless persons in 
the general homeless or at-risk population. 

[End of figure] 

In addition to fragmentation of services, some degree of overlap in 
services occurred for programs serving three distinct homeless 
populations--the general homeless or at-risk population, veterans, and 
children and youth. We differentiated between two types of services: 

* Primary services were stated directly within a program's goals and 
objectives. 

* Other eligible services were indicated by agency staff as services 
or activities the program is eligible to provide. 

More specifically, we found two different types of overlap--instances 
when programs offered the same primary service to a similar population 
and instances when programs offered other eligible services to a 
similar population. Overlap tended to be more prevalent for the "other 
eligible services" category. However, the scope of this report did not 
allow us to gather enough information to fully discuss the degree of 
overlap among homelessness programs. Agency officials provided 
explanations about why persons experiencing homelessness often need 
assistance in areas other than housing, such as health care and 
employment. For example, HHS staff told us that it was necessary for 
programs to offer several services--in particular, case management 
services that provide linkages and referrals to other services as 
needed. In addition to case management services, agency staff told us 
it was important for programs to conduct outreach efforts because the 
population was difficult to reach and the outreach helped ensure 
access to services. HHS staff also told us that while persons 
experiencing homelessness may be eligible for services provided by 
specific programs, resource constraints limit the availability of 
services. For some programs, such as HUD's Homeless Assistance Grants 
or HHS's Runaway and Homeless Youth Programs, meeting the definition 
of homelessness does not entitle individuals to benefits because these 
programs are limited by the amount of funds appropriated for them. 

General Homeless or At-Risk Population: 

We found program overlap in three HHS programs that provide mental 
health care and substance abuse treatment as primary services (see 
figure 4). According to HHS staff, the three programs have distinct 
differences, such as their statutory authorities, subpopulations 
served, or living situations. 

* Projects for Assistance in Transition from Homelessness provides 
services including case management, outreach, community mental health, 
and substance abuse treatment services to persons typically living on 
the street with serious mental illnesses or co-occurring disorders 
(such as substance abuse disorders). 

* Services in Supportive Housing Grants primarily provides mental 
health care and substance abuse treatment to individuals and families 
living in HUD-funded and other permanent supportive housing units. 

* Grants for the Benefit of Homeless Individuals provides services to 
individuals with mental health disorders, substance use disorders, or 
co-occurring mental and substance use disorders and links individuals 
to stable housing. 

Figure 4: Overlap in Program Services to the General Homeless or At-
Risk Population, Fiscal Year 2011: 

[Refer to PDF for image: illustrated table] 

Population served: General homeless or at-risk; 
Agency: HHS; 

Program: Projects for Assistance in Transition from Homelessness
Services: 
Food assistance: Other eligible services; 
Mental health care: Primary service;
Substance abuse treatment: Primary service;
Income support: Other eligible services; 
Homeless prevention: Other eligible services; 
Case management: Primary service;
Outreach efforts: Primary service;
Transportation: Other eligible services. 

Program: Services in Supportive Housing Grants; 
Services: 
Food assistance: Other eligible services; 
Primary health care: Other eligible services; 
Mental health care: Primary service;
Substance abuse treatment: Primary service;
Education: Other eligible services; 
Employment assistance: Other eligible services; 
Income support: Other eligible services; 
Homeless prevention: Other eligible services; 
Case management: Primary service;
Outreach efforts: Other eligible services; 
Transportation: Other eligible services. 

Program: Health Care for the Homeless; 
Services: 
Primary health care: Primary service;
Dental care: Other eligible services; 
Mental health care: Other eligible services; 
Substance abuse treatment: Other eligible services; 
Case management: Other eligible services; 
Outreach efforts: Other eligible services; 
Transportation: Other eligible services. 

Program: Grants for the Benefit of Homeless Individuals; 
Services: 
Mental health care: Primary service;
Substance abuse treatment: Primary service;
Education: Other eligible services; 
Employment assistance: Other eligible services; 
Homeless prevention: Other eligible services; 
Case management: Primary service;
Outreach efforts: Primary service;
Transportation: Other eligible services. 

Population served: General homeless or at-risk; 
Agency: HUD; 

Program: Homeless Assistance Grants; 
Services: 
Permanent housing: Primary service;
Transitional housing: Primary service;
Emergency shelter: Primary service;
Food assistance: Other eligible services; 
Mental health care: Other eligible services; 
Substance abuse treatment: Other eligible services; 
Employment assistance: Other eligible services; 
Homeless prevention: Primary service;
Case management: Primary service;
Outreach efforts: Other eligible services; 
Transportation: Other eligible services. 

Program: Homelessness Prevention and Rapid Re-Housing Program; 
Services: 
Transitional housing: Primary service;
Homeless prevention: Primary service;
Case management: Other eligible services; 
Outreach efforts: Other eligible services. 

Program: Base Realignment and Closure Program
Services: 
Property[A]: Primary service. 

Population served: General homeless or at-risk; 
Agency: FEMA; 
Program: Emergency Food and Shelter Program; 
Services: 
Transitional housing: Primary service;
Emergency shelter: Primary service;
Food assistance: Primary service;
Homeless prevention: Other eligible services; 
Transportation: Other eligible services. 

Population served: General homeless or at-risk; 
Agency: Multiple agencies; 
Program: Federal Surplus Real Property (Title V); 
Services: 
Property[A]: Primary service. 

Source: GAO analysis of questionnaire responses.                   

[A] These programs provide different properties to eligible homeless 
service providers but do not directly provide services for persons 
experiencing homelessness. 

[End of figure] 

Overlapping programs can lead to individuals being eligible for 
similar services in multiple programs--as is the case with these three 
HHS programs. According to the Interagency Council, while it is 
possible that individuals may be eligible for multiple programs, it is 
unlikely that there is a high occurrence of individuals actually being 
served by multiple programs. The scope of this report did not allow us 
to assess whether individuals were accessing multiple programs. 
According to HHS staff, the agency coordinates its homelessness 
programs and activities with biweekly meetings that serve to update 
and share homelessness program information across the agency and to 
discuss new initiatives. According to the staff, the meetings are one 
way to help to ensure that HHS's homelessness programs complement 
rather than duplicate one another. 

Homeless Veterans: 

The services of several programs for veterans overlapped (see figure 
5). According to agency staff, the programs are distinct in that they 
serve different subpopulations, in different settings. 

* Domiciliary Care for Homeless Veterans Program offers mental health 
care and substance abuse treatment. The program is an intensive 
residential treatment program that targets veterans with severe 
medical conditions and psychiatric needs and operates at 44 sites 
across the country. As part of its services, the program assists 
veterans in finding transitional or permanent housing options. 

* Homeless Providers Grants and Per Diem Program is a transitional 
housing program that provides supportive services for veterans living 
in the community and operates at roughly 600 sites and veterans may 
reside for up to 24 months. Veterans participating in the Homeless 
Providers Grants and Per Diem Program are connected with VA Medical 
Center services such as primary health care and other clinical 
services. 

* Health Care for Homeless Veterans Program helps get homeless 
veterans off the streets and connects them to VA Medical Center 
services such as primary health care and other clinical services. 

* Homeless Veteran Supported Employment Program uses homeless 
veterans, formerly homeless veterans, or those at risk for 
homelessness to provide rapid, individualized, competitive community 
job placement for currently homeless veterans. These services occur 
within a health care delivery system, which includes assessment of 
employment barriers such as medical, psychiatric, and substance abuse. 

* Homeless Veterans Reintegration Program offers employment assistance 
as a primary service. The Labor program offers classroom training and 
job placement with the goal of placing veterans in direct employment. 

Figure 5: Overlap in Program Services to Homeless Veterans, Fiscal 
Year 2011: 

[Refer to PDF for image: illustrated table] 

Population served: Veterans; 
Agency: VA; 

Program: Domiciliary Care for Homeless Veterans Program
Services: 
Transitional housing: Other eligible services; 
Food assistance: Other eligible services; 
Primary health care: Other eligible services; 
Mental health care: Primary service; 
Substance abuse treatment: Primary service; 
Employment assistance: Other eligible services; 
Case management: Other eligible services. 

Program: Homeless Providers Grants and Per Diem Program; 
Services: 
Transitional housing: Primary service; 
Food assistance: Other eligible services; 
Primary health care: Other eligible services; 
Mental health care: Other eligible services; 
Substance abuse treatment: Other eligible services; 
Education: Other eligible services; 
Employment assistance: Other eligible services; 
Case management: Other eligible services; 
Outreach efforts: Other eligible services; 
Transportation: Other eligible services. 

Program: Health Care for Homeless Veterans Program; 
Services: 
Transitional housing: Primary service; 
Emergency shelter: Primary service; 
Food assistance: Other eligible services; 
Primary health care: Other eligible services; 
Mental health care: Other eligible services; 
Substance abuse treatment: Other eligible services; 
Education: Other eligible services; 
Employment assistance: Other eligible services; 
Case management: Other eligible services; 
Outreach efforts: Primary service. 

Program: Homeless Veterans Dental Program; 
Services: 
Dental care: Primary service. 

Program: Stand Downs; 
Services: 
Outreach efforts: Primary service. 

Program: Excess Property for Homeless Veterans Initiative; 
Services: 
Property[A]: Primary service. 

Program: Regional Office Homeless Veterans Outreach Activities; 
Services: 
Outreach efforts: Primary service. 

Program: Homeless Veteran Supported Employment Program; 
Services: 
Employment assistance: Primary service. 

Program: Preventing Veteran Homelessness through Mortgage Foreclosure 
Assistance; 
Services: 
Case management: Primary service; 
Outreach efforts: Other eligible services. 

Program: National Call Center for Homeless Veterans; 
Services: 
Outreach efforts: Primary service. 

Program: Acquired Property Sales for Homeless Veterans; 
Services: 
Property[A]: Primary service. 

Agency: Labor;   

Program: Homeless Veterans Reintegration Program; 
Services: 
Education: Other eligible services; 
Employment assistance: Primary service; 
Case management: Other eligible services; 
Outreach efforts: Other eligible services; 
Transportation: Other eligible services. 

Agency: Multiple agencies; 

Program: HUD-VA Supportive Housing (HUD-VASH); 
Services: 
Permanent housing: Primary service; 
Mental health care: Other eligible services; 
Substance abuse treatment: Other eligible services; 
Employment assistance: Other eligible services; 
Case management: Primary service; 
Outreach efforts: Other eligible services. 

Program: Veterans Homeless Prevention Demonstration Program; 
Services: 
Employment assistance: Other eligible services; 
Homeless prevention: Primary service; 
Case management: Other eligible services; 
Outreach efforts: Other eligible services; 
Transportation: Other eligible services. 

Source: GAO analysis of questionnaire responses.   

[A] The Excess Property for Homeless Veterans Initiative helps 
distribute personal property, while the Acquired Property Sales for 
Homeless Providers program sells properties to eligible homeless 
service providers that will offer the properties as shelters to 
homeless veterans. 

[End of figure] 

Homeless Children and Youth: 

The two programs serving homeless children and youth did not offer the 
same primary services, but there is some overlap in other eligible 
services offered by these two programs (see figure 6). Education's 
program focused on offering educational services and case management 
to school-age children, while HHS's Runaway and Homeless Youth 
Programs provided housing, case management, and outreach efforts to 
youth who run away from home and are living in at-risk 
situations.[Footnote 19] The Runaway and Homeless Youth Programs 
provide services for severely at-risk youth, including pregnant and 
parenting teens who may not be able to receive services through many 
other homelessness programs due to their age. According to HHS, the 
programs that support youth homelessness are an attempt to address the 
needs of this specific population. 

Figure 6: Overlap in Program Services to Homeless Children and Youth, 
Fiscal Year 2011: 

[Refer to PDF for image: illustrated table] 

Population served: Children and youth; 

Agency: Education; 
Program: Education for Homeless Children and Youths; 
Services: 
Education: Primary service; 
Case management: Other eligible services; 
Outreach efforts: Other eligible services; 
Transportation: Other eligible services. 

Agency: HHS; 
Program: Runaway and Homeless Youth Programs; 
Services: 
Transitional housing: Primary service; 
Emergency shelter: Primary service; 
Food assistance: Other eligible services; 
Mental health care: Other eligible services; 
Substance abuse treatment: Other eligible services; 
Education: Other eligible services; 
Employment assistance: Other eligible services; 
Homeless prevention: Other eligible services; 
Case management: Primary service; 
Outreach efforts: Primary service; 
Transportation: Other eligible services. 

Source: GAO analysis of questionnaire responses. 

[End of figure] 

Fragmentation and Overlap May Result in Inefficiencies: 

Inefficiencies as a result of fragmentation and overlap can result at 
multiple levels. Our body of work on fragmentation, overlap, and 
duplication has found that agencies often can realize a range of 
benefits, such as improved customer service and decreased 
administrative burdens and cost savings from addressing issues related 
to fragmentation, overlap, and duplication. However, these cost 
savings can be difficult to estimate in some cases because the portion 
of agency budgets devoted to certain programs or activities is not 
clear. In addition, the implementation costs that might be associated 
with consolidating programs, establishing collaboration mechanisms, or 
reducing activities, facilities, or personnel (among other variables) 
are difficult to estimate, or needed information on program 
performance or costs is not readily available. 

For this report, we identified some inefficiencies that result from 
fragmentation and overlap, such as increased administrative costs, 
additional work for providers, and a confusing service delivery system 
for those needing help. Federal agencies dedicate staff time and 
resources to separately manage overlapping programs, which may 
increase administrative costs. For example, while HUD has taken steps 
to manage most of its homelessness programs under the same 
administrative unit and limit the amount of supportive services it 
provides, HHS and VA separately manage programs that provide similar 
services under different units.[Footnote 20] 

Further, fragmentation creates additional work for providers because 
each agency has its own application and reporting requirements. During 
our site visits, several local providers told us that managing 
multiple applications and reporting requirements was burdensome, 
difficult, and costly. The views of these service providers were 
consistent with information about administrative burden, for example, 
that we gathered in our previous work.[Footnote 21] Some providers 
told us it was especially difficult to manage some homelessness 
programs because they required funding streams from various agencies, 
each with various reporting requirements. Moreover, according to 
providers, persons experiencing homelessness have difficulties 
navigating services that are fragmented across agencies. As a result 
of this, many targeted programs provide case management services 
because of the difficulty their clients have in identifying and 
accessing various services available to them due to their multiple 
needs. 

As previously mentioned, fragmentation and overlap in some programs 
has been caused in part by their legislative creation as separate 
programs under the jurisdiction of several agencies. Additionally, 
programs developed incrementally over time to address the specific 
needs of certain segments of the homeless population. Some advantages 
exist to having multiple federal agencies or programs providing 
homelessness services. Agency officials and service providers stated 
that reasons why a fragmented service system existed were because the 
needs of people experiencing homelessness varied greatly as did the 
nature of the assistance they required. Similarly, agency staff and 
local officials stated that overlapping services and the availability 
of multiple programs with similar benefits helped ensure that those in 
need had access to the resources they needed because one program might 
be more accessible or better suited than another to meet the needs of 
a particular client. HHS staff told us overlapping programs helps 
ensure access to services because persons experiencing homelessness 
are not steered toward one point of entry and in contrast can access 
services through several points of entry. Another provider stated that 
it was important for persons experiencing homelessness to receive 
services from both targeted and mainstream programs because the 
ultimate goal was to house clients and have them live independently 
(that is, not be in need of homeless services). 

Ultimately, fragmentation across agencies can create an environment in 
which persons experiencing homelessness are not served as efficiently 
and effectively as possible, making coordination across government 
essential. By addressing inefficiencies that result from fragmentation 
and overlap, agencies will be able to better leverage government 
resources, decrease administrative burdens, and assist persons 
experiencing homelessness more effectively. 

Programs Maintain Performance Information, but Program Evaluations Are 
Limited: 

Targeted Programs Have Performance Data, and Efforts to Increase 
Information from Mainstream Programs Have Begun: 

The majority of targeted programs maintain performance data, which is 
an important component for measuring program performance. Performance 
measurement is the ongoing monitoring and reporting of program 
accomplishments, particularly progress toward pre-established goals. 
[Footnote 22] Performance measures may address the type or level of 
program activities conducted (process), the direct products and 
services a program delivers (outputs), or the results of those 
products and services (outcomes). According to the questionnaire 
responses, 25 of 26 targeted programs reported that they maintained 
performance information such as metrics and targets for the level of 
performance to be achieved, or report the actual level of performance 
achieved (see appendix III).[Footnote 23] We asked respondents to 
provide examples of the types and uses of performance information 
collected. For instance, HHS's Services in Supportive Housing Grants 
program responded that it collects various data related to mental 
health when an individual enters the program, at 6 months into the 
program, and again when the individual is discharged, which enables 
the program to measure performance and report outcomes. VA's 
Domiciliary Care for Homeless Veterans Program responded that it uses 
a monitoring system that includes baseline information about veterans 
at admittance to the program and their clinical outcomes at the time 
of discharge. 

A majority (24 of 26) of the targeted programs reported that they 
collected data on the number of homeless served, which is a measure of 
program output.[Footnote 24] Of the two remaining programs, one 
program--FEMA's Emergency Food and Shelter Program--collects 
information on services such as meals provided or nights of lodging 
but not the number of homeless served. The other program--the Acquired 
Property Sales for Homeless Providers--did not collect data on the 
number of homeless served because the program transfers government 
properties to nonprofit organizations or other entities, which in turn 
provide services to persons experiencing homelessness. The program 
tracks the number of properties transferred. 

While persons experiencing homelessness may access services through 
targeted and mainstream programs, the mainstream programs do not 
consistently collect data on services provided to this population. 
Less than half of the mainstream programs, 30 of 62 programs or 48 
percent, indicated that they collected data on the numbers of homeless 
served (see appendix II for more detail). We asked respondents who 
indicated their programs did not collect data on homelessness to 
explain why not. Some responded that they did not collect data on 
persons experiencing homelessness because their programs did not 
target this population specifically. For instance, some stated that 
eligibility for the program was based on income levels, which would 
not necessarily identify persons experiencing homelessness. Other 
programs did not collect information on homelessness because they had 
a different focus such as food nutrition and collected information 
such as meals served instead. Also, other programs indicated that they 
were not required by law to collect information on an individual's 
housing status. For example, HHS told us by law, they cannot ask 
Temporary Assistance for Needy Families grantees to report on certain 
information, including housing status. 

However, respondents for 29 of 62 programs reported that their 
programs had taken steps to increase the participation of persons 
experiencing homelessness (see appendix II for more detail). For 
instance, the Department of Agriculture's Special Supplemental 
Nutrition Program for Women, Infants, and Children includes outreach 
to homeless shelters, social service departments, or other agencies 
that serve persons experiencing homelessness. HHS's Child Support 
Enforcement Program has collaborated with VA to increase participation 
of homeless veterans. Finally, HHS's Ryan White HIV/AIDS Program 
requires grantees to have a public planning process to prioritize 
services. The homeless population is included in the planning process. 

As we have discussed in a previous report, collecting consistent, 
comprehensive, and accurate data on persons experiencing homelessness 
presents numerous challenges.[Footnote 25] Such efforts could be 
difficult and costly. But we also noted that several mainstream 
programs already collect information on the housing status of 
individuals, and opportunities exist for building on existing systems 
and procedures. If collected, the more comprehensive data then could 
potentially be used to identify areas for increased coordination 
between targeted and mainstream programs and help increase the 
effectiveness of homelessness programs. We made recommendations to 
federal agencies and the Interagency Council that addressed consistent 
data collection and a related issue--developing a common vocabulary 
for homelessness programs. 

As GAO recommended, the Interagency Council has begun facilitating 
discussions with federal agencies about the feasibility of creating a 
common data standard in relation to housing status across relevant 
federal programs. According to the Interagency Council's strategic 
plan, this effort will facilitate data exchanges and comparisons 
between targeted and mainstream programs and improve identification of 
people experiencing or at risk of homelessness. We discuss the 
Interagency Council's efforts later in this report. 

Few Efficiency or Effectiveness Evaluations of Targeted Programs Exist: 

Limited information exists about program efficiency or effectiveness 
because the majority of targeted programs have not conducted a program 
evaluation recently. According to our questionnaire results, 2 of 26 
targeted programs reported having a program evaluation to assess 
efficiency or effectiveness within the last 5 years. We define 
"evaluation" as an individual systematic study conducted periodically 
or on an ad hoc basis to assess how well a program is working, 
typically relative to its objectives.[Footnote 26] Program evaluations 
also allow for identification of actions that may improve results. 

The two completed program evaluations looked at the following: 

* Labor's Homeless Veterans Reintegration Program.[Footnote 27] The 
study examined how well the program was accomplishing its mission and 
meeting its goals and provided data to inform future program 
decisions. The evaluation focused on four main issues: (1) how common 
measures impacted grantee performance; (2) how Labor-funded staff 
positions influence grantee processes, performance, and 
outcomes;[Footnote 28] (3) how performance results differ across 
grantee types; and (4) the characteristics of successful and 
unsuccessful homeless veteran job seekers in relation to employment 
and retention outcomes.[Footnote 29] Labor officials told us that as a 
result of the study, the agency clarified the role of Labor-funded 
staff who work with program grantees, strengthened the language in the 
program application to emphasize building relationships and 
partnerships with local agencies that employ Labor staff, and changed 
the language in the program guidance to emphasize to state workforce 
agencies the need to provide services to homeless veterans. 

* HHS's Projects for Assistance in Transition from 
Homelessness.[Footnote 30] According to this evaluation, the 
legislation for this program requires that the expenditures of program 
grantees are evaluated at least once every 3 years to ensure they are 
consistent with legislative requirements and to recommend changes to 
program design or operations. The objectives for the evaluation were 
to determine if (1) services were appropriate, (2) services were well 
administered, and (3) outcome and process goals were achieved. The 
evaluation found that the program was meeting its objectives. HHS 
officials told us that evaluation findings are used to improve program 
performance, monitor, and identify trends among grant recipients and 
clients. 

Additionally, agency staff from two other programs indicated that the 
agency either had an evaluation under way or was planning an 
evaluation. For instance, Education officials told us that a program 
evaluation has been under way for the Education for Homeless Children 
and Youths program, with the study expected to be completed in 2013. 
HHS officials stated that they were in the early planning stages for 
an evaluation of one of the components of the Runaway and Homeless 
Youth Programs (Transitional Living Program). The officials estimated 
that the evaluation would begin in fiscal year 2012 and include an 
analysis of 5 years of program data to determine program performance 
and success. 

Although program evaluations were limited, some agencies have 
conducted general research on the issue of homelessness. For example, 

* HHS's Office of the Assistant Secretary for Planning and Evaluation 
is responsible for policy research, evaluation, and economic analysis. 
According to HHS officials, the office oversees various research 
projects including homelessness. For instance, in fiscal year 2011 the 
office conducted two homelessness research projects. One project 
focused on Medicaid and permanent supportive housing services for 
individuals experiencing chronic homelessness. The other project 
focused on linking services and housing assistance for homeless 
families and those at risk of homelessness. 

* HUD's Office of Policy, Development, and Research is responsible for 
maintaining information on housing needs and existing programs and 
also addresses the efficacy and cost of different homeless 
interventions such as transitional housing and emergency shelter. 
According to HUD, the office plays a policy advisory role in preparing 
HUD's regulatory, budget, and legislative proposals and in activities 
such as assessing the economic effect of HUD's regulations and setting 
performance goals and measures. 

* VA's Northeast Performance Evaluation Center performs program 
evaluation on specialized mental health care provided through VA 
nationally. These specialized programs include services for homeless 
veterans, resident treatment, work therapy programs, post-traumatic 
stress disorder programs, and intensive case management programs. 
[Footnote 31] Additionally, VA's National Center on Homelessness Among 
Veterans has a primary goal to develop, promote, and enhance policy, 
clinical care research, and education to improve and integrate 
homeless services. 

The Interagency Council maintains homelessness research and evaluation 
information from across the federal government and throughout the 
country on its website, but does not conduct research itself. 
According to Interagency Council staff, the council does not have the 
resources or the expertise to conduct research. Instead, the 
Interagency Council's strategic plan calls for collaborating and 
compiling research to better understand best practices, the cost-
effectiveness of various interventions, metrics to measure outcomes, 
and the gaps in homelessness research. According to the 2011 update to 
the strategic plan, the council convened a federal interagency 
research group to share research information and has compiled research 
on its website to make information more accessible to state, local, 
and private sector partners. 

While performance information can be helpful for monitoring whether 
programs were achieving desired results, program evaluations allow for 
comprehensive assessments. Thus, the limited evaluations of recent 
years make it difficult to fully assess what is working and how 
improvements can be made in programs addressing homelessness. It is 
critical for the federal agencies that carry out these programs to 
identify which programs are more effective in addressing the needs of 
persons experiencing homelessness. Understanding program performance 
and effectiveness is key to determining in which programs and 
interventions to strategically invest limited federal funds. 

While Federal Coordination Efforts Have Increased, Strategic Plan 
Could Be Improved: 

Interagency Council Has Taken Steps to Enhance Coordination: 

The Interagency Council has taken several actions to enhance 
coordination and promote initiatives across government agencies. As 
previously discussed, the HEARTH Act, which was enacted in May 2009, 
directs the Interagency Council to coordinate the federal response to 
homelessness and create national partnerships at every level of 
government and with the private sector to reduce and end homelessness. 
[Footnote 32] The act contains statutory functions and requirements 
for the council, some of which relate to coordination, while others 
relate to monitoring or reporting requirements. While the HEARTH Act 
also requires the Interagency Council to take actions as necessary to 
reduce duplication among programs, council staff told us they do not 
view duplication among programs as the problem. Rather, they regard 
fragmentation in delivery of services at the local level and a 
mismatch between need and resources as the most significant issues. 
Therefore, the council focuses its attention on coordination efforts 
among its member agencies. 

Based on our review of documents and discussions with council and 
other agency staff, the Interagency Council's actions in response to 
HEARTH Act requirements include the following: 

* Convened federal partners and issued a federal strategy. Since May 
2009, the Interagency Council appointed a new executive director and 
convened 10 full council meetings where participants focused 
discussions around the development and implementation of a federal 
strategy.[Footnote 33] In June 2010, the council issued the first 
federal strategic plan.[Footnote 34] According to the HEARTH Act, the 
council must update the plan annually and the first update was issued 
in October 2011.[Footnote 35] Agencies have taken steps to adopt the 
strategy and incorporate it into their own efforts. HUD told us they 
incorporated the strategic plan's goals, objectives, and strategies 
into its annual budget process; Agency Performance Goals; and its 
strategic plan and performance management process. VA officials told 
us they developed an operating plan to help implement and incorporate 
the plan into their own efforts. HHS and Council officials told us 
plans specific to homeless children and youth are under development 
and expected to be discussed in June and September 2012 at Council 
meetings. Some member agencies do not operate homelessness programs, 
or administer relatively few, and therefore would not be expected to 
develop plans to implement the federal strategic plan. 

* Distributed information about federal programs and resources and 
provided professional and technical assistance. In May 2011, the 
Interagency Council launched a redesign of its website and implemented 
a broader communication strategy that included updating newsletters 
and implementing a webinar series. The redesigned website includes 
information about programs, funding opportunities, and federal 
technical assistance available; abstracts of relevant research 
conducted in the past 10 years; and a series of fact sheets. 
Additionally, council staff provided professional and technical 
assistance through a series of webinars. 

* Coordinated at the state and local levels. The Interagency Council 
has developed several resources to help states and local communities 
implement strategic plans tailored to prevent and end homelessness or 
realign existing plans. To this end, the council issued guidance to 
assist local governments and communities. The Interagency Council also 
has encouraged the creation of state interagency councils on 
homelessness--a requirement of the HEARTH Act--by issuing a fact sheet 
and toolkit about how to start and develop these councils. An 
interactive state map with key facts and contacts for federal, state, 
and local officials is available on the Interagency Council website. 
Additionally, the council will have four regional coordinators 
throughout the country to provide professional and technical 
assistance to states and local communities beginning in May 2012. The 
regional coordinators will also participate in local, state, and 
regional meetings and workshops as necessary. 

* Took steps to develop a common vocabulary. The Interagency Council 
has taken initial steps to develop a common vocabulary for discussing 
homelessness and related terms, as recommended in our June 2010 
report.[Footnote 36] In January 2011, the council held a meeting with 
85 participants from stakeholder organizations and issued a report to 
Congress in June 2011 that summarized feedback received during the 
meeting. The report notes that a common vocabulary would allow federal 
agencies to better measure the scope and dimensions of homelessness, 
and may ease program implementation and coordination. Additionally, 
the council held three meetings in 2011 (in August, September, and 
October) to discuss implementation of a common vocabulary with key 
federal agencies. The Interagency Council has stated implementation of 
a common vocabulary among its member agencies would require long-term 
efforts. 

* Developed joint federal agency initiatives. The Interagency Council 
organized a work group, known as the Council Policy Group, which 
provides a regular forum for coordinating policies, programs, data, 
and other initiatives among council members. HHS, HUD, VA, and the 
Interagency Council issued joint guidance and hosted a webinar on 
strategies to improve the accuracy of HUD's point-in-time counts of 
people experiencing homelessness. HHS and VA also have been working 
with HUD and the Interagency Council to determine the feasibility of 
entering data from their respective programs into HUD's data system 
(Homelessness Management Information Systems, or HMIS). According to 
VA officials, three VA programs input data into HMIS and officials 
told us they were in the early stages of determining the feasibility 
of entering data from additional programs into HMIS. Additionally, HHS 
officials told us they have been working to determine the feasibility 
of having all grantees in the Runaway and Homeless Youth Programs 
enter data into HMIS. As we reported in the past, a common vocabulary 
would allow agencies to collect consistent data that agencies could 
compile to better understand the nature of homelessness. 

* Developed performance goals and metrics related to coordination. In 
fiscal year 2011, the Interagency Council worked with the Office of 
Management and Budget to develop specific performance goals. However, 
more time is needed to assess the council's progress in meeting its 
performance goals because the council put the goals in place in fiscal 
year 2012. One of the council's two performance goals relates to 
coordination of federal resources; that is, coordinating the federal 
government's response to homelessness to maximize the reach and impact 
of federal resources. Additionally, the council established two 
strategies and five metrics to help accomplish the coordination goal. 

Several federal agency officials told us that the Interagency Council 
has been effective in coordinating the federal response to 
homelessness across agencies. For instance, HUD officials told us that 
the council effectively disseminates information, lessons learned, and 
best practices. HHS told us that the council has led efforts to obtain 
a better understanding of homeless youth by convening a workgroup to 
determine gaps in services and resources for this population. 

While federal coordination efforts have increased or were under way, 
local service providers with whom we spoke during our site visits said 
greater coordination still was needed, providers suggested activities 
such as promoting the movement toward permanent supportive housing, 
providing more technical assistance, having a greater role in 
promoting research around prevention methods, and increasing attention 
around how changes in federal health care will impact local 
communities. Interagency Council staff told us resource constraints 
have affected their ability to coordinate the federal response to 
homelessness and fulfill HEARTH Act requirements. They noted that 
improving coordination would be a long-term effort. 

Opportunities Exist to Further Improve the National Strategy: 

The federal strategic plan to prevent and end homelessness has served 
as a useful and necessary first step in increasing agency coordination 
and focusing attention on ending homelessness, but lacks some key 
characteristics desirable in a national strategy. In previous work, we 
identified six characteristics desirable for an effective national 
strategy. (See table 3 in appendix I for a detailed description of 
each characteristic.)[Footnote 37] The federal strategic plan and its 
update fully address two characteristics of an effective national 
strategy and partially address the remaining four (see figure 7). 

Figure 7: Extent to Which the Strategic Plan to Prevent and End 
Homelessness Addresses Characteristics of an Effective National 
Strategy, as of May 2012: 

[Refer to PDF for image: illustrated table] 

Desirable characteristic: (1) Clear purpose, scope, and methodology; 
Strategic plan: Addresses; 
Area where improvement needed: Not applicable. 

Desirable characteristic: (2) Detailed discussion of problems and 
risks; 
Strategic plan: Addresses; 
Area where improvement needed: Not applicable. 

Desirable characteristic: (3) Desired goals, objectives, activities, 
and performance measures; 
Strategic plan: Partially addresses; 
Area where improvement needed: Priorities, milestones, and performance 
measures. 

Desirable characteristic: (4) Description of future costs and 
resources needed; 
Strategic plan: Partially addresses; 
Area where improvement needed: Costs and resource allocation. 

Desirable characteristic: (5) Organizational roles, responsibilities, 
and coordination; 
Strategic plan: Partially addresses; 
Area where improvement needed: Delineation of roles and 
responsibilities for federal agencies. 

Desirable characteristic: (6) Description of integration with other 
entities and implementation; 
Strategic plan: Partially addresses; 
Area where improvement needed: Clarification of integration with other 
entities and plans to implement the strategy. 

Source: GAO analysis of strategic plan to prevent and end homelessness. 

[End of figure] 

More specifically, the plan addresses the following characteristics: 

* Clear purpose, scope, and methodology. The strategy effectively 
addresses why it was produced, the scope of its coverage, and the 
process by which it was developed. For example, the HEARTH Act 
mandated that the Interagency Council develop the federal strategic 
plan and update it annually. The council worked with its 19 member 
agencies and state, local, and private sector partners to develop the 
strategy. The plan clearly articulates the methodology and states that 
the council held meetings with representatives of several 
organizations, mayors, and congressional staff, and also received 
input from leaders of state and regional interagency councils, and 
thousands of comments from the public, as part of the process of 
developing the plan. 

* Detailed discussion of problems and risks. The strategy provides a 
detailed discussion of problems and risks, including national data 
points, relating to homelessness in the United States. The Interagency 
Council primarily used data from HUD and Education to provide 
statistics and information about the number of persons experiencing 
homelessness. Additionally, in terms of risks, the plan includes a 
discussion about the consequences of homelessness. For example, the 
plan states that children in families experiencing homelessness have 
high rates of acute and chronic health problems and a majority of them 
were exposed to violence. 

The strategic plan partially addresses the following characteristics: 

* Desired goals, objectives, activities, and performance measures. The 
strategy effectively describes the desired overall goal, which is to 
prevent and end homelessness. It includes four key goals: (1) finish 
the job of ending chronic homelessness in 5 years; (2) prevent and end 
homelessness among veterans in 5 years; (3) prevent and end 
homelessness for families, youth, and children in 10 years; and (4) 
set a path to ending all types of homelessness. Additionally, the 
strategy includes 10 objectives and 52 strategies that align with the 
four goals. However, the strategy does not discuss or identify 
priorities and milestones that would help translate the goals and 
objectives into action. For example, it does not rank or prioritize 
which objectives or strategies need greater attention and focus. While 
the plan does align the objectives with federal agencies, it does not 
identify specific activities for each member agency to implement. 
Although the Interagency Council's implementation plan for the 
strategic plan assigns the plan's 10 objectives and 52 strategies to 
specific council staff, it does not set priorities, milestones, or 
differentiate which objectives and strategies require greater focus by 
specific member agencies. Additionally, while the strategy includes 
six performance measures that align well with the goals and 
objectives, the plan lacks specific activities and corresponding 
performance metrics that the council and member agencies could use to 
measure their progress in taking actions to implement the plan. 
[Footnote 38] Furthermore, the strategy does not describe the overall 
framework for accountability and oversight, such as how federal 
agencies would be held accountable for implementing the plan and 
taking actions. Without additional performance metrics corresponding 
to actions taken to implement the plan, the Interagency Council, 
federal agencies, and Congress may face difficultly in measuring 
incremental progress and ultimately determining whether the strategic 
plan was successful in terms of helping coordinate federal efforts. 

* Description of future costs and resources needed. The plan generally 
identifies numerous resource and investment needs, but lacks a 
discussion of the costs and resources needed to help achieve the 10 
objectives and put into action the 52 strategies. For instance, it 
does not discuss the costs, sources of investment, and types of 
resources needed. Further, an effective strategy would provide 
guidance to implementing parties about how to manage resources and 
investments accordingly--and begin to address difficult but critical 
issues of who pays, and how such efforts will be funded and sustained 
in the future. For instance, an effective strategy would help 
prioritize future costs and resources for research and program 
evaluations. Some budget figures are included in the October 2011 
update to the strategic plan. For example, the update includes 
information about enacted appropriations for targeted homelessness 
programs; however, it does not discuss in detail the costs and sources 
of investments needed in the future to help implement objectives such 
as providing affordable or permanent supportive housing or improving 
access to mainstream programs. The strategy states the development of 
the plan was guided by key principles, including cost-effectiveness, 
but contains relatively little discussion about the cost-effectiveness 
of specific federal programs. Program evaluations can help identify 
which programs are most effective in addressing the needs of persons 
experiencing homelessness and better target federal resources. Without 
a discussion of resources, investments, and priorities, the 
Interagency Council, federal agencies, and Congress could face 
difficulties in focusing scarce resources on the most cost-effective 
programs and initiatives. 

* Organizational roles, responsibilities, and coordination and 
integration with other entities. The strategy specifically states that 
the Interagency Council will provide federal leadership coordinating 
homelessness efforts and that the council's staff should work in 
partnership with the 19 member agencies. For each of the objectives, 
the plan identifies federal leadership, but does not include 
priorities for each agency and does not provide actions or activities 
that the agencies should take to help achieve the goals and 
objectives. Without discussion and delineation of which entities will 
implement the strategy, their roles and responsibilities, and 
mechanisms for coordinating efforts, the ability of agencies to 
implement the goals and objectives of the strategy will be diminished. 

Overall, the plan effectively describes goals and objectives. In 
discussions with council staff they told us in implementing the 
strategic plan the council is setting priorities, determining how to 
measure programs and results, and identifying mechanisms to hold 
federal and nonfederal partners accountable. However, these efforts 
need to be transparent to ensure accountability, inform Congress, and 
enhance federal efforts to prevent and end homelessness. 

Conclusions: 

The economic downturn and governmental resource constraints of recent 
years have focused attention on the problem of homelessness and on 
ways to help ensure that federal programs efficiently and effectively 
use their resources to address that problem. But the wide range of 
federal homelessness programs has resulted in some degree of 
fragmentation and overlap of services provided and populations served. 
Specifically, we found that HUD, HHS, Labor, and VA have multiple 
programs that offer similar services to similar beneficiaries. The VA 
offers multiple programs to veterans that are eligible for receiving 
these services as a result of military service. While there may be 
advantages to fragmentation and overlap, they also entail 
inefficiencies that programs may not be able to afford in an era of 
resource constraints and ongoing coverage gaps. Our work has shown 
that fragmented and overlapping federal programs result in 
administrative burdens, additional work for local service providers, 
and a confusing service delivery system for beneficiaries. However, 
because our work identified specific areas of fragmentation and 
overlap among targeted homelessness programs, it also suggests that 
agencies can use this and other information to better target their 
efforts and coordinate to help reduce or eliminate inefficiencies that 
result from fragmentation and overlap. Additionally, limited 
performance evaluations make it difficult to fully assess what is 
working and how improvements can be made in programs addressing 
homelessness. While such evaluations can be resource-intensive, their 
benefits include helping agencies identify how to better structure or 
operate programs more efficiently, which in turn may help realize cost 
savings. 

Since 2009, one entity--the Interagency Council--has had an explicit 
mandate to coordinate the federal response to homelessness. The 
council has taken several actions to increase coordination across 
federal agencies, and its issuance of the first national strategic 
plan to prevent and end homelessness was a positive first step in 
improving coordination across agencies. The strategy is important 
because it broadly describes the federal approach to preventing and 
ending homelessness. The strategy sets goals and is an evolving 
effort, as the HEARTH Act requires that it be updated annually. 
However, the plan does not specifically address priorities, 
milestones, resources, and a clear delineation of roles and 
responsibilities for federal agencies to help achieve results. Without 
a detailed and transparent discussion of these elements, the plan's 
usefulness as a management tool for ensuring accountability and 
achieving results is diminished. In addition, without descriptions of 
the resources needed to achieve the goals, policymakers lack 
information that would be helpful in allocating resources. 

Recommendations for Executive Action: 

Based on our review, we are making two recommendations: 

The Interagency Council and the Office of Management and Budget--in 
conjunction with the Secretaries of HHS, HUD, Labor, and VA--should 
consider examining inefficiencies that may result from overlap and 
fragmentation in their programs for persons experiencing homelessness. 
As a starting point, the agencies could use the program information 
from this report to further analyze the degree and effects of overlap 
and fragmentation. The results of this assessment could be used to 
take actions to reduce any identified inefficiencies and therefore 
better leverage their resources. Actions may include streamlining 
services offered within specific programs or by agencies, identifying 
programs that could benefit from further research or evaluations, or 
consolidating programs or services to reduce administrative costs. 

To help prioritize, clarify, and refine efforts to improve 
coordination across agencies, and improve the efficiency and 
effectiveness of federal homelessness programs, the Interagency 
Council, in consultation with its member agencies, should incorporate 
additional elements into updates to the national strategic plan or 
other planning and implementation documents to help set priorities, 
measure results, and ensure accountability. Such elements should be 
transparent and may include milestones, a clear delineation of roles 
and responsibilities as related to the plan's objectives, and 
corresponding performance metrics. 

Agency Comments and Our Evaluation: 

We provided a draft of this report to the Secretaries of Agriculture, 
Education, Health and Human Services, Homeland Security, Housing and 
Urban Development, Justice, Labor, and Veterans Affairs; the Acting 
Administrator of the General Services Administration; the Commissioner 
of the Social Security Administration; and the Executive Director of 
the Interagency Council for comment. We provided an informational copy 
to the Office of Management and Budget. We received comments from HHS, 
Homeland Security, HUD, Labor, VA, and the Interagency Council that 
are reproduced in appendixes IV through IX, respectively. HHS, 
Justice, VA, and the Interagency Council provided technical comments 
that were incorporated, as appropriate. The Departments of Agriculture 
and Education, GSA, and the Social Security Administration did not 
provide any comments. 

VA explicitly agreed with our first recommendation to work with the 
Interagency Council and other federal agencies that provide services 
to homeless veterans to identify opportunities to streamline programs 
and services. HHS, HUD, and Labor did not explicitly agree or disagree 
with this recommendation. They offered additional comments, which are 
reproduced in appendixes IV, VI, and VII, respectively. HHS stated 
there currently are not enough federal resources to meet the needs of 
the homeless population and close the services gap, especially for 
those with substance use and mental health disorders. While this 
report identified federal funding for homelessness programs in fiscal 
year 2010, we did not assess the availability of federal funding 
compared to the overall need. The identification of overlap or 
fragmentation in this report does not mean that funds to existing 
homelessness programs should be cut or eliminated but raises questions 
about whether existing funds are being used efficiently. HHS also 
commented about the importance of a "no wrong door" approach that 
enables people to access needed services and supports through multiple 
entry points. While this report suggests some evidence of overlapping 
services, the report also acknowledges that overlapping programs help 
ensure access to services because persons experiencing homelessness 
are not steered toward one point of entry. HUD disagreed with our 
assertion about the extent of fragmentation across federal programs 
that serve the homeless. As a result of this comment, we clarified in 
the report that evidence suggests fragmentation and some overlap. As 
previously defined, fragmentation is more than one agency involved in 
the same broad area of national interest (i.e., homelessness). This 
report identified multiple agencies managing several similar 
homelessness programs, suggesting fragmentation. Additionally, we 
acknowledge that federal agencies have taken steps to enhance 
coordination, which we have previously stated is important to help 
minimize inefficiencies. Labor offered additional comments about its 
efforts in relation to employment of homeless veterans and stated it 
will continue to work closely with the Interagency Council and other 
federal partners. 

The Interagency Council did not explicitly agree or disagree with the 
first or second recommendations. However, it provided additional 
comments about each. Regarding the first recommendation, the Council 
stated it is not within the agency's authority to streamline 
overlapping services. However, our recommendation states the Council 
should work in conjunction with key agencies and as a starting point 
use the program information from this report to further analyze the 
degree and effects of overlap and fragmentation. Streamlining services 
is one of several potential actions that agencies could take after 
further analyzing the degree and effects of overlap and fragmentation. 
As the entity mandated to coordinate the federal response to 
homelessness, the Interagency Council has an important role in 
facilitating the efforts of member agencies to address potential 
inefficiencies related to fragmentation and overlap. Regarding the 
second recommendation, the Council stated that in implementing the 
federal strategic plan it has been setting priorities, determining how 
to measure progress and results, and identifying mechanisms to hold 
federal and nonfederal partners accountable. However, the council was 
unable to provide us with documentation that these activities were 
occurring. Therefore, we did not revise our second recommendation 
because these additional implementation efforts must also be 
transparent to help ensure accountability and measure the plan's 
progress. The Interagency Council made additional points, including: 

* commenting that our report did not reflect the strong commitment to 
research and to implement innovative practices across member agencies. 
Our report acknowledges that some agencies have conducted general 
research on the issue of homelessness, including specific research 
offices at HHS, HUD, and VA. The focus of our work was to identify 
whether programs had been evaluated and specifically whether program 
evaluations had occurred in the last 5 years. 

* questioning whether there was a specific understanding of "at risk" 
for homelessness in determining whether two programs met the criteria 
we used for targeted programs. In identifying programs, we defined a 
targeted program as one that (1) was in operation as of fiscal year 
2011 and (2) provided assistance exclusively to those persons 
experiencing homelessness or at risk for homelessness. While we agree 
there may be subjectivity in interpreting "at risk" for homelessness, 
we shared our list of programs with agency officials and they agreed 
the programs met the criteria for a targeted program. 

* asserting that property disposition programs would be better 
examined separately from targeted programs. The council further stated 
that including more programs in our review made it appear that there 
is more fragmentation and overlap than actually exists and they 
disagreed with our assertion about the extent of fragmentation. As 
previously stated, we clarified in the report that evidence suggests 
fragmentation and some overlap. This report states that 3 of 26 
targeted programs provide federal surplus properties to eligible 
homelessness service providers and one program provides excess 
personal property to homeless veterans. In assessing the extent of 
fragmentation, overlap, and duplication of federal homelessness 
programs, we did not distinguish between different types of federal 
assistance and therefore included programs providing grants; direct 
assistance; or the sale, exchange, or donation of property or goods. 

We are sending copies of this report to the Secretaries of 
Agriculture, Education, Health and Human Services, Homeland Security, 
Housing and Urban Development, Justice, Labor, and Veterans Affairs; 
the Acting Administrator of the General Services Administration; the 
Commissioner of the Social Security Administration; the Executive 
Director of the Interagency Council; the Office of Management and 
Budget; and appropriate congressional committees. In addition, the 
report is available at no charge on the GAO website at [hyperlink, 
http://www.gao.gov]. 

If you or your staffs have any questions regarding this report, please 
contact me at (202) 512-8678 or cackleya@gao.gov. Contact points for 
our Offices of Congressional Relations and Public Affairs may be found 
on the last page of this report. GAO staff that made major 
contributions to this report are listed in appendix X. 

Signed by: 

Alicia Puente Cackley: 
Director, Financial Markets and Community Investment: 

[End of section] 

Appendix I: Objectives, Scope, and Methodology: 

The objectives of our report were to determine (1) the number of and 
funding levels for federal homelessness programs and the extent to 
which fragmentation, overlap, and duplication exists; (2) whether the 
programs have been evaluated; and (3) actions of the U.S. Interagency 
Council on Homelessness (Interagency Council) and federal agencies to 
coordinate federal efforts and the extent to which the federal 
strategic plan to prevent and end homelessness is an effective 
strategy. 

Overall, we reviewed relevant laws and regulations, particularly the 
McKinney-Vento Homeless Assistance Act and the Homeless Emergency 
Assistance and Rapid Transition to Housing Act (HEARTH Act). We 
reviewed relevant literature and past reports on federal homelessness 
programs, including the Congressional Research Service's report on 
targeted federal homelessness programs and recent legislation. 
[Footnote 39] We interviewed federal agency officials and staff from 
the Interagency Council to gather information on federal homelessness 
programs and information about coordinating homelessness efforts. We 
reviewed documents related to the programs and the council's 
coordination efforts and national strategic plan. We also conducted 
site visits to New York, New York; San Francisco, California; and 
Washington, D.C. We selected these locations based on the variety of 
targeted programs, size of the homeless population, and geography. In 
all three locations, we interviewed stakeholders, including local 
government officials; federal agency officials; and representatives of 
local service providers that offer services to homeless veterans, 
children and youth, women and families, and the general homeless 
population. While the number of site visits was too small to 
generalize information about the programs or assess the Interagency 
Council's overall efforts to coordinate a federal response to 
homelessness, the observations and perspectives the various 
stakeholders expressed were sufficient to provide examples about the 
programs and suggest that the Interagency Council has begun to take 
steps to coordinate federal responses to homelessness. 

Federal Homelessness Programs and the Extent of Fragmentation, 
Overlap, and Duplication: 

Program Identification: 

To identify both targeted and mainstream federal homelessness 
programs, we developed a comprehensive list of programs based on 
legislative and agency information. First, through several searches, 
we identified programs that potentially met our definitions of 
targeted and mainstream. We defined a targeted program as one that (1) 
was in operation as of fiscal year 2011 and (2) provided assistance 
exclusively to those persons experiencing homelessness or at risk for 
homelessness. We defined a mainstream program as one that (1) was in 
operation as of fiscal year 2011, (2) included persons experiencing 
homelessness or at risk for homelessness as part of the population 
served, (3) provided services that benefit the homeless similar or 
complementary to those offered by targeted programs, and that (4) 
agency officials identified to be critical in meeting the needs of the 
homeless. We excluded programs that did not directly help persons 
experiencing homelessness, such as those that exclusively provided 
technical assistance, referrals, or administrative functions. In 
developing our comprehensive list, we reviewed the Catalog of Federal 
Domestic Assistance, the Interagency Council's previous reports and 
information, and previous GAO and Congressional Research Service 
reports on homelessness, and searched the websites of the 19 member 
agencies of the Interagency Council.[Footnote 40] Our initial review 
revealed that 5 of the 19 member agencies did not operate any targeted 
or mainstream programs. As a result, we excluded these five agencies 
from our study.[Footnote 41] In total, our initial search identified 
more than 150 potential programs (48 targeted and 106 mainstream) that 
14 federal agencies administered. 

Second, we excluded 4 of the 19 member agencies and their mainstream 
programs because they were not deemed critical to meeting the needs of 
the homeless.[Footnote 42] Thus, the number of agencies in the scope 
of this study decreased from 14 to 10. Next, we shared our 
comprehensive list of programs with agency officials and asked 
officials to explain why programs should remain on the list and if any 
should be added or deleted. For example, some programs were removed 
from the list because they were not in operation in fiscal year 2011 
or were part of a larger program already listed. During the initial 
meetings with agency officials, we asked officials to clarify program 
names, descriptions, and services offered. To obtain program-specific 
information, we sent a total of 105 (35 targeted, 70 mainstream) 
structured questionnaires to the 10 agencies. These questionnaires are 
described in detail below. Our refined list included 100 unique 
programs of which three were jointly administered by two or more 
agencies.[Footnote 43] We made additional refinements to our list of 
targeted and mainstream programs based on questionnaire responses. For 
instance, we excluded additional programs or characterized them 
differently from our initial list based on the program official's 
input on whether the programs met the criteria for targeted or 
mainstream. As a result, we identified a total of 26 targeted and 62 
mainstream programs. 

Questionnaires on Federal Homelessness Programs: 

More specifically, we developed two different questionnaires, one for 
targeted programs and one for mainstream programs. The targeted 
questionnaire was lengthier and included more in-depth questions about 
program information and funding levels (for example, about program 
goals and objectives, target populations, services offered, 
performance information and evaluations, numbers of homeless served, 
and funding information). The mainstream questionnaire included 
questions about services offered, target populations, whether the 
programs collect data on the number of persons experiencing 
homelessness or at risk for homelessness, and whether steps had been 
taken to increase participation of persons experiencing homelessness 
in mainstream programs. To minimize errors arising from differences in 
how questions might be interpreted and to reduce variability in 
responses, we conducted pretests with two different agencies in 
September 2011. We obtained feedback during the pretests and revised 
the questionnaires to improve organization and clarity. We then used 
the revised instrument to conduct a second round of pretests in 
October 2011 with the same two agencies. 

We sent the questionnaires to the relevant agency contacts in November 
2011 as attachments to an e-mail message, which provided instructions, 
contact information for GAO staff, and the time frame for completing 
the questionnaire. Most of the questions required close-ended 
responses, such as checking boxes that best fit a description of the 
populations served by each program. Some questions were open-ended, 
allowing the officials to provide more in-depth details on program 
objectives, eligibility criteria, and beneficiary eligibility. 
Respondents returned completed questionnaires by e-mail, and we 
reviewed each program's questionnaire to ensure agency staff had 
provided complete and consistent responses. From November 2011 through 
January 2012, we made telephone calls to agency staff and sent follow-
up e-mails, as necessary, to clarify responses. We received completed 
questionnaires for 26 targeted and 62 mainstream programs. 

For the 26 targeted programs, we also collected obligations and 
enacted appropriations data, as available. We asked the agency staff 
to report on obligations--defined as definite commitments that create 
a legal liability of the government for the payment of goods and 
services ordered or received. Each of the 26 targeted programs 
provided obligations data for fiscal years 2008 through 2010, as 
available. A few programs were new or had not obligated any funds in 
fiscal years 2008 through 2010; therefore, they reported zero 
obligation dollars. We also collected enacted appropriations data for 
fiscal years 2008 through 2011. In several cases, programs were not 
able to provide enacted appropriations data because agency staff told 
us the program did not have a specific appropriation and funding for 
the program originated in a larger appropriation line item. As a 
result of not having complete enacted appropriations data, we excluded 
such data from this report. We did not collect funding-level 
information on mainstream programs because the programs serve the 
general low-income population, not solely persons experiencing 
homelessness, and therefore funding for mainstream programs is not an 
appropriate estimate of federal funding spent on persons experiencing 
homelessness. 

We used an independent contractor to keypunch the questionnaire data 
and provide us with a comprehensive data file. We verified a selected 
sample of keypunched records with their corresponding questionnaires 
and found that less than 0.5 percent of the data items had random 
keypunch errors that were not corrected during data processing. We 
used standard descriptive statistics to analyze responses. We 
performed data checks to identify missing fields, outliers, and 
inappropriate answers, and followed up with agency staff as necessary. 
To assess the reliability of data provided in the questionnaires, we 
incorporated questions about the reliability of the programs' data and 
financial systems, conducted internal reliability checks, and 
conducted follow-up as necessary. While we did not verify all 
responses or have access to each agency's data and financial systems 
to fully assess the reliability of the data provided or the systems 
themselves, on the basis of our questionnaire design and follow-up 
procedures, we determined that the data used in this report were 
sufficiently reliable for our purposes. Finally, GAO data analysts 
independently verified all data analysis programs and calculations for 
accuracy. 

Determining the Extent of Fragmentation, Overlap, and Duplication: 

To determine the extent of fragmentation, overlap, and duplication we 
compared data from the 26 targeted programs to comprehensively look at 
homelessness programs across the federal government and used the 
following definitions: 

* Fragmentation occurs when more than one federal agency (or more than 
one organization within an agency) is involved in the same broad area 
of national interest. 

* Overlap occurs when multiple programs have similar goals and 
activities, and offer similar services to similar target populations. 

* Duplication occurs when two or more agencies or programs are 
engaging in the same activities or providing the same services to the 
same beneficiaries. 

We previously had reported that the wide range of homelessness 
programs that federal agencies offer resulted in a fragmented service 
system.[Footnote 44] To further determine the extent of fragmentation, 
we used the questionnaire data to identify the number of agencies that 
deliver similar or the same services. For example, five federal 
agencies each administer programs that offer transitional housing 
assistance. To determine overlap, we identified the number of programs 
with similar services (such as housing or employment assistance) to 
similar populations (such as the general homeless population, homeless 
veterans, or homeless children and youth). To further determine 
overlap, we then used the services offered to determine each program's 
"primary services" and other eligible services. We designated those 
services stated within a program's goals and objectives, as reported 
in the Catalog of Federal Domestic Assistance or in the questionnaire, 
as primary services. In instances of overlapping primary and other 
eligible services to similar target populations, we reviewed the data 
with agency officials and asked clarifying questions about each 
program's primary and other eligible services and obtained information 
about differences between programs. However, the scope of this report 
did not allow us to gather enough information to fully discuss the 
degree of overlap among homelessness programs. To determine the extent 
of duplication, in instances when two or more programs engaged in the 
same primary service to similar target populations, we reviewed 
programmatic information, statutory authorities, and held meetings 
with program staff to determine whether the programs were providing 
the same services to the same beneficiaries. 

Performance Information and Program Evaluations: 

We also used the targeted questionnaire discussed above to obtain 
information to answer our second objective about performance 
information and program evaluations. For the 26 targeted programs, we 
collected performance information and asked agency staff if a program 
evaluation had been conducted in the past 5 years. For instance, the 
questionnaire asked whether the programs had performance metrics, 
targets for the level of performance to be achieved, reporting of 
actual level of performance achieved, and what other data the agency 
collected on program performance. Additionally, the questionnaire 
asked program staff to describe the performance metrics, targets, 
reporting, or other data and submit relevant documentation (that is, 
submit documents to us describing the performance information and the 
program's success in meeting any performance metrics within the last 3 
years). Further, the questionnaire asked whether targeted programs had 
an efficiency or effectiveness evaluation completed within the past 5 
years and to submit documents to us about any evaluation's findings. 
We generally defined "evaluation" as an individual systematic study 
conducted periodically or on an ad hoc basis to assess how well a 
program was working.[Footnote 45] 

For the two programs that reported having had an evaluation within the 
past 5 years, we reviewed each report's objectives, scope, key 
findings and recommendations made. However, we did not independently 
assess the quality of these reviews. Finally, we interviewed program 
staff to obtain information on how the agency uses performance 
information and program evaluation findings, as appropriate. We did 
not collect performance information or program evaluations for 
mainstream programs because these programs were designed to assist the 
general low-income population and would not necessarily track or 
monitor program performance or outcomes related to persons 
experiencing homelessness. 

Coordination Actions and the National Strategy: 

To review the actions of the Interagency Council and federal agencies 
to coordinate federal efforts, we analyzed the council's coordination 
responsibilities, obtained examples of coordination actions and 
activities from the council and key federal agencies, and interviewed 
agency officials. We reviewed the HEARTH Act and identified functions 
and duties as they relate to coordinating the federal response to 
homelessness. For instance, coordination refers to a joint activity 
bringing together two or more agencies or entities. We identified 
actions such as issuing and updating the federal strategic plan to end 
homelessness; providing assistance to states, local governments, and 
nonprofit organizations; and developing joint federal agency and other 
initiatives to fulfill the goals of the Interagency Council, as 
coordination duties. We interviewed Interagency Council staff and 
asked them to provide evidence of actions taken to fulfill 
requirements of the HEARTH Act. We reviewed relevant documents such as 
a report to Congress on developing a common vocabulary, congressional 
budget justifications, performance and accountability reports, 
guidance on creating effective state interagency councils, and agendas 
for various meetings held by the council. Additionally, our 
questionnaire to targeted programs asked agency staff whether the 
agency or program offices coordinated or collaborated with other 
federal agencies or programs to plan, facilitate, or implement 
programs and examples of how this was done. Finally, during our site 
visits, we asked local service providers, local officials, and federal 
program staff to provide examples of coordination activities the 
Interagency Council and federal agencies have undertaken. 

To determine the extent to which the national strategic plan to 
prevent and end homelessness is an effective strategy, we analyzed the 
national strategy and gathered feedback on it from federal agencies. 
We obtained copies of the 2010 national strategy, the 2011 update to 
the national strategy, and an implementation plan that indicates which 
Interagency Council staff were responsible for specific items within 
the strategy. We assessed the strategy by benchmarking it against our 
prior work identifying the six desirable characteristics of an 
effective national strategy (see table 3). We have used this 
methodology in several past reports.[Footnote 46] 

Table 3: Summary of Desirable Characteristics for a National Strategy: 

Desirable characteristic: (1) Purpose, scope, and methodology; 
Description: Addresses why the strategy was produced, the scope of its 
coverage, and the process by which it was developed. 

Desirable characteristic: (2) Problem definition and risk assessment; 
Description: Addresses the particular national problems and threats 
the strategy is directed towards. 

Desirable characteristic: (3) Goals, subordinate objectives, 
activities, and performance measures; 
Description: Addresses what the strategy is trying to achieve, steps 
to achieve those results, as well as the priorities, milestones, and 
performance measures to gauge results. 

Desirable characteristic: (4) Resources, investments, and risk 
management; 
Description: Addresses what the strategy will cost, the sources and 
types of resources and investments needed, and where resources and 
investments should be targeted based on balancing risk reductions with 
costs. 

Desirable characteristic: (5) Organizational roles, responsibilities, 
and coordination; 
Description: Addresses who will be implementing the strategy, what 
their roles will be compared to others, and mechanisms for them to 
coordinate their efforts. 

Desirable characteristic: (6) Integration and implementation; 
Description: Addresses how a national strategy relates to other 
strategies' goals, objectives, and activities, and to subordinate 
levels of government and their plans to implement the strategy. 

Source: GAO. 

[End of table] 

We assessed the federal strategic plan to prevent and end homelessness 
according to the six characteristics and provided a rating for each 
characteristic. Similar to our other reports that used these six 
characteristics, we gave ratings of "addresses," "partially 
addresses," or "does not address." According to our methodology, a 
strategy addresses a characteristic when it explicitly cites all, or 
nearly all, elements of the characteristic, and has sufficient 
specificity and detail. A strategy partially addresses a 
characteristic when it explicitly cites one or a few of the elements 
of a characteristic, and the documents have sufficient specificity and 
detail. It should be noted that the partially addresses category 
includes a range that varies from explicitly citing most, but not all, 
of the elements to citing as few as one of the elements of a 
characteristic. A strategy does not address a characteristic when it 
does not explicitly cite or discuss any element of a characteristic, 
any references are either too vague or general to be useful, or both. 

We conducted this performance audit from June 2011 to May 2012 in 
accordance with generally accepted government auditing standards. 
Those standards require that we plan and perform the audit to obtain 
sufficient, appropriate evidence to provide a reasonable basis for our 
findings and conclusions based on our audit objectives. We believe 
that the evidence obtained provides a reasonable basis for our 
findings and conclusions based on our audit objectives. 

[End of section] 

Appendix II: Mainstream Programs That Persons Experiencing 
Homelessness Can Access: 

Persons experiencing homelessness may receive assistance through 
mainstream programs that are designed for low-income people generally. 
We defined a mainstream program as one that (1) was in operation as of 
fiscal year 2011, (2) included persons experiencing homelessness or at 
risk for homelessness as part of the population served, (3) provided 
services that benefit the homeless similar or complementary to those 
offered by targeted programs, and that (4) agency officials identified 
to be critical in meeting the needs of the homeless. This report does 
not include all programs that can serve persons experiencing or at 
risk for homelessness because some programs that can do so did not 
meet all the criteria in our definition. Table 4 summarizes 62 
mainstream programs that met the above definition. In response to our 
questionnaire (see appendix I), mainstream programs reported whether 
they collected data on the number served and steps taken to increase 
participation of persons experiencing homelessness. 

Table 4: Mainstream Programs That Persons Experiencing Homelessness 
Can Access: 

Department of Agriculture (11): 

Program name: Child and Adult Care Food Program; 
Description: Department of Agriculture (11): Provides snacks and meals 
to low-income children participating in after school, weekend, or 
holiday activities such as a tutoring program or after school 
childcare; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Emergency Food Assistance Program; 
Description: Department of Agriculture (11): Provides food to local 
agencies, usually food banks, which in turn, distribute the food to 
soup kitchens and food pantries that directly serve the public; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Food Distribution Program on Indian Reservations; 
Description: Department of Agriculture (11): Provides food to low-
income households living on Indian reservations, and to American 
Indian households; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Hunger Free Communities Grants; 
Description: Department of Agriculture (11): Provides grants to assess 
community hunger problems, develop new resources to achieve hunger-
free communities, or both; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Multi-Family Housing; 
Description: Provides permanent affordable housing; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: National School Lunch Program and School Breakfast 
Program; 
Description: Allows eligible children to receive free or reduced-price 
meals during the school year; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Senior Farmers' Market Nutrition Program; 
Description: Provides low-income seniors with coupons that can be 
exchanged for eligible foods at farmers' markets, roadside stands, and 
community-supported agriculture programs; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Single-Family Housing; 
Description: Provides permanent affordable housing; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Special Supplemental Nutrition Program for Women, 
Infants and Children; 
Description: Provides nutritious foods, healthy eating information, 
and health-care referrals to help protect the health of women, 
infants, and children who are at nutritional risk; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Summer Food Service Program; 
Description: Provides free breakfasts and lunches to children during 
the summer months at participating schools, summer camps, churches, 
and community organizations that are designated by their states as 
sponsor programs. Some participating programs are connected with 
supervised activities in which children also participate; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Supplemental Nutrition Assistance Program; 
Description:Provides food benefits issued via debit cards to low-
income households that can be used to purchase food from participating 
retail stores; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Department of Education (2): 

Program name: Individuals with Disabilities Education Act Program, 
Parts B and C; 
Description: Provides services and improves results for infants, 
toddlers, children and youth with disabilities, including those with 
disabilities who are homeless; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Title I, Part A, Improving Basic Programs Operated by 
Local Educational Agencies; 
Description: Provides financial assistance to local educational 
agencies and schools with high numbers or high percentages of children 
from low-income families to help ensure that all children meet 
challenging state academic standards; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Department of Health and Human Services (15): 

Program name: Access to Recovery; 
Description: Provides discretionary funds to states, territories, and 
tribal organizations to establish new or expand existing voucher 
programs that promote client choice for substance abuse treatment and 
recovery support services; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Child Support Enforcement Program; 
Description: Helps families by promoting family self-sufficiency and 
child well-being; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Children's Health Insurance Program; 
Description: Provides health insurance to children in families with 
very low income; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Community Mental Health Services Block Grant; 
Description: Provides and encourages the development of creative and 
cost-effective community-based care for people with serious mental 
disorders; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Community Services Block Grant; 
Description: Funds a network of community action agencies that 
provides services and activities to reduce poverty, including services 
to address employment, education, better use of available income, 
housing assistance, nutrition, energy, emergency services, health, and 
substance abuse needs; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Family Violence Prevention and Services Grant Program; 
Description: Assists state agencies, territories, and Indian tribes in 
the provision of shelter to victims of family violence and their 
dependents, and for related services, such as emergency transportation 
and child care; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Head Start; 
Description: Provides school readiness by enhancing the social and 
cognitive development of children through the provision of 
educational, health, nutritional, social and other services to 
enrolled children and families; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Health Center Program; 
Description: Provides comprehensive, primary health care services to 
medically underserved communities and vulnerable populations. Health 
centers are community-based organizations that serve populations with 
limited access to health care; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Healthy Start; 
Description: Increases access and utilization of health-care services 
for low-income women during pregnancy and in the months following 
delivery in areas with high infant mortality and shortages of health-
care providers; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: John H. Chafee Foster Care Independence Program; 
Description: Assists current and former foster care youths achieve 
self-sufficiency. Provides short-term housing, education, employment 
and job training, and case management; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Medicaid; 
Description: Provides health care coverage to low-income individuals 
and families; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Ryan White HIV/AIDS Program; 
Description: Provides HIV-related services for those who do not have 
sufficient health-care coverage or financial resources for coping with 
HIV; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Social Services Block Grant; 
Description: Assists states in delivering social services directed 
toward the needs of children and adults; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Substance Abuse Prevention and Treatment Block Grant; 
Description: Provides substance abuse prevention, early intervention, 
treatment, and recovery support services for individuals, families, 
and communities impacted by substance abuse and substance use 
disorders; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Temporary Assistance for Needy Families; 
Description: Provides temporary cash assistance and services for low-
income families with children; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Department of Housing and Urban Development (8): 

Program name: Community Development Block Grant; 
Description: Addresses a wide range of unique community development 
needs; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: HOME Investment Partnerships Program; 
Description: Expands the supply of affordable housing and increases 
the capacity of state and local governments and nonprofit 
organizations in developing such housing; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Housing Choice Voucher Program (Section 8); 
Description: Assists very low-income families, the elderly, and 
persons with disabilities to afford decent, safe, and sanitary housing 
in the private market; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Housing Counseling Program; 
Description: Provides funding to support free or low-cost advice 
related to buying a home, renting, default, foreclosure avoidance, 
credit issues and reverse mortgages; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Housing Opportunities for Persons with AIDS; 
Description: Funds may be used for a wide range of housing, social 
services, program planning, and development costs; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Native American Housing Assistance and Self 
Determination Act; 
Description: Provides loan guarantees to Indian tribes for private 
market loans to develop affordable housing. The act provides a formula-
based grant program as well; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Public Housing Program; 
Description: Provides decent and safe rental housing for eligible low-
income families, the elderly, and persons with disabilities; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Section 811 Supportive Housing for Persons with 
Disabilities; 
Description: Allows persons with disabilities to live as independently 
as possible in the community by increasing the supply of rental 
housing with the availability of supportive services; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Department of Justice (5): 

Program name: Drug Court Discretionary Grant Program; 
Description: Funds the development, implementation, and enhancement of 
drug treatment courts in state and local jurisdictions. Services may 
include substance abuse and mental health treatment, employment, job 
training, and education; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Justice and Mental Health Collaboration Program; 
Description: Provides grants and assistance to states and local 
government agencies to tackle the problem of serious mental illness 
among the nation's nonviolent offenders; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Promoting Child and Youth Safety: Chicago Safe Place 
Program; 
Description: Provides resources to the Youth Network Council with the 
purpose of promoting youth safety by preventing victimization of 
Chicago's unaccompanied and homeless youth through the provision of a 
network of resources; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Second Chance Act Program; 
Description: Provides funding to assist the re-entering population of 
adults and adolescents from state and local correctional facilities; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

Program name: Services to Advocate for and Respond to Youth; 
Description: Provides mental health and case management services to 
youth victims of domestic violence, dating violence, sexual assault, 
and stalking; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Department of Labor (12): 

Program name: Disabled Veterans Outreach Program; 
Description: Provides intensive services to meet the employment needs 
of disabled veterans and other eligible veterans, with the maximum 
emphasis directed toward serving those who are economically or 
educationally disadvantaged, including homeless veterans, and veterans 
with barriers to employment; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Indian and Native American Employment and Training 
Program; 
Description: Provides funds for employment and training services 
provided by organizations serving Indians and Native Americans; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Job Corps; 
Description: Provides career technical training and educational 
services for low-income students, ages 16-24; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Local Veterans Employment Representative; 
Description: Conducts outreach to employers and engages in advocacy 
efforts with hiring executives to increase employment opportunities 
for veterans, encourage the hiring of disabled veterans, and generally 
assist veterans to gain and retain employment; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: National Farmworker Jobs Program; 
Description: Provides funding to community-based organizations and 
public agencies to offer job training and employment assistance for 
migrant and seasonal farmworkers; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Reintegration of Ex-Offenders; 
Description: Provides employment and training services for adult 
prisoners 18 and older returning home and juvenile offenders and at-
risk youth ages 14-24; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Senior Community Service Employment Program; 
Description: Helps unemployed, low-income older individuals gain the 
skills they need to find and sustain employment in the workforce while 
they participate in useful community service activities; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Veterans' Workforce Investment Program; 
Description: Provides services to assist in reintegrating eligible 
veterans into meaningful employment within the labor force and to 
stimulate the development of effective service delivery systems that 
will address the complex problems facing eligible veterans; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Wagner-Peyser Employment Service; 
Description: Provides employment-related labor exchange services, 
including but not limited to, job search assistance, job referral and 
placement assistance for job seekers, re-employment services to 
unemployment insurance claimants, and recruitment; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Workforce Investment Act Adult Program; 
Description: Provides workforce investment services to adults to 
increase their employment, retention in employment, and earnings, and 
also support their occupational skill attainment and career 
advancement; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Program name: Workforce Investment Act Youth Program; 
Description: Provides workforce investment services to low-income 
youth who meet specific eligibility categories; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Youth Build; 
Description: Serves low-income youth between the ages of 16 and 24. 
Strong emphasis is placed on leadership development and community 
service; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Empty]. 

Department of Veterans Affairs (5): 

Program name: Compensated Work Therapy Program; 
Description: Provides employment and training and case-management 
services to veterans whose vocational lives have been disrupted by 
mental illness, substance abuse, or homelessness; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Disability Compensation and Non-Service Connected 
Pension; 
Description: Provides disability compensation benefits to veterans 
because of injuries or diseases that happened while on active duty, or 
were made worse by active military service. Pension is an income-based 
monthly benefit paid to veterans with honorable wartime service who 
are 65 or older or who are permanently and totally disabled due to 
disability that is not related to military service; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Healthcare for Reentry Veterans; 
Description: Addresses the community reentry needs of incarcerated 
veterans. The program goals are to prevent homelessness, reduce the 
impact of medical, psychiatric, and substance abuse problems upon 
community readjustment, and decrease the likelihood of reincarceration 
for those leaving prison; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Vet Center; 
Description: Provides counseling, outreach, and referral services to 
eligible combat veterans and active duty servicemembers to help them 
make a satisfying post-war readjustment to civilian life. Family 
members of eligible veterans are also eligible for Vet Center 
services. ; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

Program name: Veterans Justice Outreach; 
Description: Provides outreach services to veterans in contact with 
the justice system through encounters with police, jails, and courts. 
The goal of the program is to provide timely access to VA services for 
eligible justice-involved veterans to prevent homelessness and avoid 
the unnecessary criminalization of mental health and other problematic 
clinical issues among veterans; 
Collect data on homeless served: [Check]; 
Steps taken to increase participation: [Check]. 

General Services Administration (1): 

Program name: Federal Surplus Personal Property Donation Program; 
Description: Enables certain nonfederal organizations to obtain 
personal property that the federal government no longer needs and can 
benefit the community. Surplus property can include all types and 
categories such as food, clothing, beds, medical supplies, furniture, 
and a host of other items; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Social Security Administration (3): 

Program name: Social Security Disability Insurance; 
Description: Provides benefits based on a worker's prior earnings. 
Dependents, such as spouses and children, of disabled workers also may 
receive benefits; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Supplemental Security Income; 
Description: Provides basic income support to needy individuals who 
are blind, disabled, or who are aged 65 or older and have limited or 
no other income; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Check]. 

Program name: Social Security Retirement; 
Description: Provides benefits based on a worker's prior earnings and 
retirement age; 
Collect data on homeless served: [Empty]; 
Steps taken to increase participation: [Empty]. 

[End of table] 

[End of section] 

Source: GAO analysis of agency information and questionnaire responses. 

Appendix III: Performance Information for 26 Targeted Programs: 

In their responses to our questionnaire (see appendix I), almost all 
of the targeted programs (25 of 26) replied they maintained 
performance information such as metrics and targets for the level of 
performance to be achieved, or reported the actual level of 
performance achieved for their respective programs (see table 5). The 
specific type of performance measures they maintained varied. More 
than half of the programs maintained performance metrics information 
(15 of 26), and almost half maintained targets for the level of 
performance (12 of 26). And almost all indicated that they reported 
information on actual performance (23 of 26). 

Table 5: Performance Information Collected, by Program: 

Agency: VA; 
Program: Domiciliary Care for Homeless Veterans Program; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: VA; 
Program: Homeless Providers Grants and Per Diem Program; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: VA; 
Program: Health Care for Homeless Veterans Program; 
Performance metrics: [Check]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Empty]; 
Other data: [Check]. 

Agency: VA; 
Program: Homeless Veterans Dental Program; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: VA; 
Program: National Call Center for Homeless Veterans; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: VA; 
Program: Stand Downs; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: VA; 
Program: Acquired Property Sales for Homeless Providers[A]; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Empty]; 
Other data: [Empty]. 

Agency: VA; 
Program: Excess Property for Homeless Veterans Initiative; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Empty]; 
Other data: [Check]. 

Agency: VA; 
Program: Regional Office Homeless Veterans Outreach Activities; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: VA; 
Program: Homeless Veteran Supported Employment Program; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: VA; 
Program: Preventing Veteran Homelessness through Mortgage Foreclosure 
Assistance; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: HHS; 
Program: Projects for Assistance in Transition from Homelessness; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Empty]. 

Agency: HHS; 
Program: Runaway and Homeless Youth Programs; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Empty]. 

Agency: HHS; 
Program: Health Care for the Homeless; 
Performance metrics: [Check]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: HHS; 
Program: Grants for the Benefit of Homeless Individuals; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: HHS; 
Program: Services in Supportive Housing Grants; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: HUD; 
Program: Homeless Assistance Grants; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: HUD; 
Program: Homelessness Prevention and Rapid Re-Housing Program; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: HUD; 
Program: Base Realignment and Closure Program; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: Education; 
Program: Education for Homeless Children and Youths; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: FEMA; 
Program: Emergency Food and Shelter Program; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: Justice; 
Program: Transitional Housing Assistance for Victims of Domestic 
Violence, Stalking, or Sexual Assault; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: Labor; 
Program: Homeless Veterans Reintegration Program; 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: Multiagency; 
Program: HUD-VA Supportive Housing (HUD-VASH); 
Performance metrics: [Check]; 
Targets for the level of performance: [Check]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: Multiagency; 
Program: Veterans Homeless Prevention Demonstration Program; 
Performance metrics: [Empty]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Agency: Multiagency; 
Program: Federal Surplus Real Property (Title V); 
Performance metrics: [Check]; 
Targets for the level of performance: [Empty]; 
Reporting of actual performance: [Check]; 
Other data: [Check]. 

Total: 
Performance metrics: 15; 
Targets for the level of performance: 12; 
Reporting of actual performance: 23; 
Other data: 23. 

Source: GAO analysis of questionnaire responses. 

[A] VA's Acquired Property Sales for Homeless Providers program 
reported that it did not collect performance information. 

[End of table] 

[End of section] 

Appendix IV: Comments from the Department of Health and Human Services: 

Department of Health & Human Services: 
Office of The Secretary: 
Assistant Secretary for Legislation: 
Washington, DC 20201: 

May 1, 2012: 

Alicia Puente Cackley: 
Director, Financial Markets and Community Investments: 
U.S. Government Accountability Office: 
441 G Street NW: 
Washington, DC 20548: 

Dear Ms. Cackley: 

Attached are comments on the U.S. Government Accountability Office's 
(GAO) correspondence entitled: "Homelessness: Fragmentation and 
Overlap in Programs Highlight the Need to Identify, Assess, and Reduce 
Inefficiencies" (GAO-12-491). 

The Department appreciates the opportunity to review this draft 
section of the report prior to publication. 

Sincerely, 

Signed by: 

Jim R. Esquea: 
Assistant Secretary for Legislation: 

Attachment: 

[End of letter] 

General Comments Of The Department Of Health And Human Services (HHS) 
On The Government Accountability Office's (GAO) Draft Report Entitled, 
"Homelessness: Fragmentation And Overlap In Programs Highlight The 
Need To Identify, Assess, And Reduce Inefficiencies" (GAO-12-491): 

The Department appreciates the opportunity to comment on this draft 
report. 

HHS agrees that there may be some duplication and fragmentation of 
services among federal programs that target individuals who are 
homeless or at-risk of homelessness. However, HHS recommends that GAO 
address the following critical issues that impact the availability of 
appropriate homeless services in concluding the report. 

The emphasis on identifying areas of overlap and duplication of 
services among the cited agencies does not recognize the gap between 
current capacity and magnitude of need. Despite the efforts of current 
federal programs providing homeless services (GAO is reviewing 26) and 
total federal funding (GAO's figure is $2.8 billion), there currently 
are not enough federal resources to meet the needs of the homeless 
population and close the services gap, especially for those with 
substance use and mental health disorders. For example, refer to the 
following information from HUD and the U.S. Conference of Mayors: 

In 2010, nearly 37 percent of all homeless persons reported a 
disability, and persons with disabilities are 2.5 times more likely to 
become homeless,[Footnote 1] Persons with mental illnesses and/or 
substance use disorders accounted for 46 percent of the sheltered 
adults in the 2010 point-in-time count completed annually by the U.S. 
Department of Housing and Urban Development.[Footnote 2] When mayors 
of 29 U.S. cities were asked to identify the three main causes of 
homelessness among unaccompanied individuals, mental illness and the 
lack of services tied with substance abuse and the lack of services as 
the third most significant cause.[Footnote 3] 

Therefore, eliminating programs for the purpose of reducing 
"duplicated" services would result in decreased access to services for 
individuals with mental health and substance use disorders, In the 
present system, individuals may seek services from a number of sources 
(e.g., providers, agencies) according to their circumstances, needs 
and preferences. In an unduplicated system (e.g., where there is one 
strictly defined and limited eligibility approach), it is likely that 
persons would be strictly matched to programs via eligibility 
criteria, For example, a veteran would be served only by the VA rather 
than receive services from a program that for them potentially would 
be more convenient or appropriate. 

The document does not distinguish between programs which have time-
limited services from those that are ongoing. For example, SAMHSA's 
Grants for the Benefit of Homeless Individuals (GBHI) and Services in 
Supportive Housing (SSH) programs are funded for no more than 5 years, 
whereas HRSA's Health Care for Homeless programs are continually 
funded. 

The document does not indicate the importance of workforce issues in 
considering the roles of the cited programs. First, the current 
workforce is inadequate relative to the need. Second, it is critical 
that the workforce be trained specifically to work with persons who 
are homeless in order to understand contextual issues. For example, 
compliance with medication regimens can be impeded by inability to 
properly store medications; lack of identification impedes eligibility 
to insurance and entitlement programs, and so forth. Housing providers 
need a different skill set than mental health and substance abuse 
providers. There is a benefit to having overlapping staff, in addition 
to overlapping services, to ensure a comprehensive approach to 
covering the needs of homeless individuals. 

On page 6, the report notes that better coordination of programs could 
minimize inefficiencies. SAMHSA is currently participating with the 
U.S. Interagency Council on Homelessness (USICH) to better understand 
the array of funding and services available for individuals 
experiencing homelessness — including our nation's youth. SAMHSA 
supports the expansion of these important efforts and will participate 
in all future endeavors to coordinate across the federal government. 

HITS recommends highlighting the need to establish an integrated 
coordinated care system beginning with outreach and moving to 
treatment, supportive housing and on-going recovery support. 

HHS recommends acknowledging the importance of a "no wrong door" 
approach that enables people to access needed services and supports 
through multiple entry points and respects variation in individual 
preferences, geographic, and cultural differences. 

As noted on page 14, SAMHSA administers three programs that provide 
mental health services and substance abuse services for individuals 
experiencing homelessness. In so doing, SAMHSA coordinates its cross-
center homeless activities through an established team responsible for 
the oversight of the homelessness and housing grant and contract 
portfolio that ensures that strong coordination and guidance is 
provided for statutory program requirements (e.g., Projects for 
Assistance in Transition from Homelessness (PATH) and GBHI programs), 
collaboration with key federal partners and various program 
activities. The cross-agency team seeks to ensure that duplication is 
minimized and programs are administered in a coordinated fashion. 

SAMHSA's homeless programs are designed to address the specific needs 
of different homeless populations and form an integrated continuum of 
care approach. In complying with statutory requirements for the PATH 
and the GBHI programs, the services are not duplicative. Rather, they 
are customized to include outreach, case management, clinical 
treatment, recovery support services and follow-up, which are 
individualized, appropriate, and needed for the varied and complex 
needs of persons who experience homelessness. As such, SAMHSA's 
programs are not clearly categorized as General Homeless or At-risk 
population. 

Finally, we want to reiterate that, although Opening Doors does not 
include a written implementation plan, HHS has been working with ICH 
staff and our federal partners to implement Opening Doors. The 
Department has participated in several workgroups charged with 
identifying a specific approach to meeting one of the goals, 
objectives, or strategies in the Plan. The most recent example of this 
work is an interagency workgroup co-chaired by ICH and HHS/ACYF. This 
group meets weekly with the goal of identifying actions that can be 
taken now and in the future to understand and end youth homelessness. 

Appendix IV Footnotes: 

[1] U.S. Department of Housing and Urban Development (2011). The 2010 
Annual Homeless Assessment Report to Congress, p. 16-17. 

[2] U.S. Department of Housing and Urban Development (2011). The 2010 
Annual Homeless Assessment Report to Congress, p. 18. 

[3] U.S. Conference of Mayors (2011). Hunger and Homelessness Survey: 
A Status Report on Hunger and Homelessness in America's Cities. A 29-
City Survey. 

[End of section] 

Appendix V: Comments from the Department of Homeland Security: 

U.S. Department of Homeland Security: 
Washington, DC 20528: 

April 26, 2012: 

Ms. Alicia Puente Cackley: 
Director, Financial Markets and Community Investments: 
U.S. Government Accountability Office: 
441 G Street, NW: 
Washington, DC 20548: 

Re: Draft Report GA0-12-491, "Homelessness: Fragmentation and Overlap in
Programs Highlight the Need to Identify, Assess, and Reduce 
Inefficiencies" 

Dear Ms. Cackley: 

Thank you for the opportunity to review and comment on this draft 
report. The U.S. Department of Homeland Security (DHS) appreciates the 
U.S. Government Accountability Office's (GAO's) work in planning and 
conducting its review and issuing this report. 

The Department is pleased to note GAO's mention of the Federal 
Emergency Management Agency's Emergency Food and Shelter Program 
(EFSP) in the report. The EFSP is an important program that 
supplements and expands the ongoing efforts of local social service 
organizations throughout our country in all States and territories to 
provide food, shelter, and supportive services to families and 
individuals with emergency economic needs. For example, during fiscal 
year 2010, the EFSP provided 181,143,820 meals and 5,943,526 nights of 
lodging, and paid 1,232,072 rent/mortgage and 331,408 utility payments 
for people experiencing, or at risk of, homelessness and hunger. We 
also noted the report does not contain any recommendations directed to 
DHS. 

DHS remains committed to working with its partners throughout all 
levels of government, law enforcement, private industry, and the 
public to ensure the safety, security, and resilience of our
Nation. Again, thank you for the opportunity to review and comment on 
this report. We look forward to working with you on future Homeland 
Security issues. 

Sincerely, 

Signed by: 

Jim H. Crumpacker: 
Director: 
Departmental GAO/OIG Liaison Office: 

[End of section] 

Appendix VI: Comments from the Department of Housing and Urban 
Development: 

U.S. Department of Housing and Urban Development:
Office of Community Planning and Development: 
Washington, DC 20410-7000: 

May 1, 2012: 

Ms. Alicia Cackley: 
Financial Markets and Community Investments: 
U.S. Government Accountability Office: 
441 G Street, NW: 
Washington, DC 20548: 

Thank you for the opportunity to comment on the Government 
Accountability Office's draft report entitled, Homelessness: 
Fragmentation and Overlap in Programs Highlight the Need to Identify, 
Assess, and Reduce Inefficiencies (GAO-12-491) (May 2012). The draft
report recommends that the U.S. Interagency Council on Homelessness 
(USICH), in conjunction with HUD, and other federal agencies, consider 
taking actions to reduce inefficiencies, such as streamlining 
overlapping services and identifying programs that would benefit from 
further research or evaluations. 

The draft report contends that the federal response to homelessness is 
fragmented, and that overlap among various programs has led to 
inefficient program administration and service delivery. GAO 
recommends that agencies consider actions such as streamlining 
services offered within specific programs, identifying programs that 
could benefit from further research, or consolidating programs or 
services to reduce administrative costs. 

HUD agrees that improved collaboration and coordination across the 
federal government is essential. However, HUD disagrees with GAO's 
assertion regarding the extent of fragmentation across federal 
programs that serve the homeless. The work that HUD is doing as a 
results of the Opening Doors: Federal Strategic Plan to Prevent and 
End Homelessness (Strategic Plan) is making a significant impact on 
the way that housing and services are being provided to serve persons 
experiencing homelessness. HUD has incorporated the Strategic Plan's  
goals, objectives, and strategies into its annual budget process, its 
competitive NOFA for homeless programs, Agency Performance Goals, 
HUD's Strategic Plan, and HUDStat—-the Department's performance 
management process. As a result, these goals and strategies are being 
incorporated into local decisionmaking by federal grantees and local 
interagency councils on homelessness. Furthermore, the level of 
engagement is unprecedented between HUD Secretary Donovan, U.S. 
Department of Veterans Affairs (VA) Secretary Shinseki, U.S. 
Department of and Health and Human Services (HHS) Secretary Sebelius, 
and the USICH. 

HUDStat: 

In October 2010, the Department launched HUDStat to track progress on 
Agency Performance Goals, identify inefficiencies within programs, and 
develop solutions or action steps to ensure that HUD's administration 
of its programs are streamlined and effective. In addition to ensuring 
that HUD is collaborating across its internal offices, other federal 
agencies and grantees have been invited to participate in meetings, as 
appropriate. For example, HUD included the VA, USICH, and local Public 
Housing Agencies (PHAs) in discussions on meeting goals and improving 
the HUD-VA Supportive Housing (HUD-VASH) program. HUD and VA developed 
a joint Agency Performance Goal (APG) to align with achieving the 
Strategic Plan's goal to end veterans' homelessness by 2015; this is 
monitored through a shared HUDStat semiannual review. HUDStat sessions 
on all homelessness-related APGs include the participation of USICH so 
that relevant cross-agency information and experiences are part of the 
conversation. 

HUDStat demonstrates that the analysis of data, combined with focused 
attention on replicating successes and solving the identified 
problems, improves agency performance. The quarterly meetings, led by 
Secretary Donovan, evaluate each Agency Performance Goal and encourage 
ongoing collaboration between offices within the Department and with 
other federal agencies. 

HUD-VASH: 

The HUD-VASH program combines HUD's Housing Choice Voucher rental 
assistance, administered through its Office of Public and Indian 
Housing (PIH), for homeless Veterans with case management and clinical 
services, provided by VA community-based medical centers.
Along with PIH and VA, HUD's Office of Special Needs Assistance 
Programs (SNAPS), which administers HUD's homeless programs, determine 
where to allocate vouchers based on need (number of homeless veterans) 
and local performance. Since 2008, this partnership has provided 
permanent housing and services for 37,395 homeless veterans and their 
families. HUD and VA meet regularly to ensure that homeless veterans 
are identified and housed as quickly as possible. As problems with the 
process or poorly performing sites are identified, HUD and VA meet to 
develop solutions. Efforts to streamline the administrative processes 
have significantly reduced the amount of time required between 
referral and lease-up of a veteran family. 

Data Collection Efforts: 

The Strategic Plan is the first comprehensive approach to end 
homelessness nationwide. In it, the Obama Administration set goals to 
end chronic and veteran homelessness by 2015, family and youth 
homelessness by 2020, and a set path to end all types of homelessness. 
HUD's role is vital in setting goals and targets by providing data 
from Point-in-Time (PIT) counts and Homeless Management Information 
Systems (HMIS) which track progress on achieving the goals of the 
Strategic Plan. 

In 2010, the VA began participating in the PIT count effort to obtain 
more accurate data on homeless veterans. Further, both VA and HHS are 
adopting HMIS as a tool to collect client-level data. In the revised 1-
IMIS Data Standards, currently in clearance, both Departments were 
consulted to ensure that the systems would capture their needed 
measurements. USICH has also formed an interagency task force to 
identity opportunities for federal agencies to align the
language used in discussing homelessness and, subsequently, the way 
that each collects data. 

Veteran's Homeless Prevention Demonstration Program:  

The purpose of the Veterans Homelessness Prevention Demonstration 
Program (VHPD) is to explore ways the federal government can offer 
early intervention homelessness prevention. This 3-year pilot is a 
partnership of HUD, VA, Department of Labor (DOL), and local service 
providers. As the lead agency, HUD received $10 million in funding to 
award grants for the provision of housing assistance and supportive 
services to veterans and their families who are homeless or at-risk of 
homelessness. The VA received $5 million in funding to provide and 
coordinate outreach and to ensure veterans engage in VA treatment, 
services and benefits. Although DOL has not received dedicated funding 
for this program, it assists veterans in gaining access to mainstream 
education and job training programs.  

HEARTH Implementation:  

The most significant example at HUD of reducing fragmentation and 
overlap to homelessness programs is the congressional passage of and 
signing by President Obama of the Homeless Emergency and Rapid 
Transition to Housing (HEARTH) Act of 2009. The HEARTH Act amended and 
reauthorized the McKinney-Vento Homeless Assistance Act with 
substantial changes including a consolidation of HUD's various 
competitive grant programs into a single program. This consolidation, 
when fully implemented, will significantly reduce the overlap and 
administrative burden that exists with three distinct programs.  

In conclusion, while the Department agrees with GAO that federal 
agencies that administer homeless programs should continue to 
coordinate their efforts, HUD believes that significant progress has 
already been made by Congress and the Administration to coordinate 
programs and policies-—where allowed by statute—-to minimize 
inefficiencies to better serve homeless men, women, and children. 
The Department appreciates the opportunity to respond to this report.  

Sincerely, 

Signed by: 

Mark Johnston: 
Deputy Assistant Secretary for Special Needs:  

[End of section] 

Appendix VII: Comments from the Department of Labor: 

U.S. Department of Labor: 
Office of the Assistant Secretary for Veterans' Employment and 
Training: 
Washington, D.C. 20210: 

MAY 1, 2012: 

Mr. Paul Schmidt: 
Assistant Director: 
Financial Markets and Community Investment: 
U.S. Government Accountability Office: 
441 G, Street, N.W. 
Washington, D.C. 20548: 

Dear Mr. Schmidt: 

Thank you for the opportunity to review the Government Accountability 
Office (GAO) draft report entitled "Homelessness: Fragmentation and 
Overlap in Programs Highlight the Need to Identify, Assess, and Reduce 
Inefficiencies (GAO-12-491)". The report is both important and timely 
considering the many challenges faced by those in. America who are 
homeless, the impact that the recession has had on them, the Hearth 
Act, and the longer term implications for the homeless. 

The Department of Labor (DOL) continues to focus on the employment of 
homeless veterans. Through the Homeless Veterans Reintegration Program 
(IIVRP), the DOL. provides employment services to homeless veterans 
through grants to community-based organizations throughout the 
country. This program is unique because it is the only Federally-
mandated homeless veterans' employment program. HVRP grantees work 
closely with other federal, state and local partners to assist 
participants with health care, benefits and housing, but the 
uniqueness of HVRP is that it prepares and assists participants with 
getting employment, which is the real gateway to self-sufficiency. 

Since 2003, the HVRP program has served over 107,000 homeless veterans 
and placed over 68,000 of them in employment with an average hourly 
wage of over $10.00. This past year, the program served over 15,900 
homeless veterans and placed 9,447 into employment with an average 
earning rate of $10.47 per hour. HVRP was one of the two programs 
identified within the report that had received a program evaluation 
within the past 5 years. In addition, the program has a rigorous 
regime of measures and planning benchmarks in the Agency's Annual
Operating Plan, which are reviewed quarterly by the Deputy Secretary 
of Labor. 

Over the years the HVRP has matured and been tailored to remain 
effective and relevant to specific and emerging populations of 
homeless veterans. Within HVRP, DOL has focused on grantees in both 
urban and non-urban areas. In FY 2010, in response to the growing 
number of homeless female veterans and homeless veterans with 
families, the DOL created a special grant program (Homeless Female 
Veterans and Veterans with Families Program) within IIVRP to focus on 
these populations among the homeless. 

While there are many risk factors that portend an individual's 
likelihood of becoming homeless, incarceration ranks as a high-risk 
factor. DOL also provides grants to service providers to address this 
specific high-risk population of veterans, through the incarcerated 
Veterans Transition Program, which is also part of HVRP. 

Finally, the HVRP program continues to provide aggressive outreach 
towards homeless veterans through its Stand Down initiatives 
throughout the country. This outreach leverages the services of other 
federal, state, and local resources to provide opportunities for 
homeless veterans to receive services, and to enroll in a structured 
program aimed at assisting them with shelter, training, and services 
to gain successful employment and reintegrate into society. In Program
Year 2011, DOL funded 96 Stand Down events. 

DOL will continue to improve HVRP and work closely with our partners 
on the Interagency Council on Homelessness to reduce and eliminate 
homelessness. I would like to thank you once again for the opportunity 
to review the draft report. If you would like additional information, 
please do not hesitate to contact me at (202) 693-4700. 

Respectfully, 

Signed by: 

John K. Moran: 
Deputy Assistant Secretary: 

[End of section] 

Appendix VIII: Comments from the Department of Veterans Affairs: 

Department of Veterans Affairs: 
Washington, DC 20420: 

May 1, 2012: 

Ms. Alicia Puente Cackley: 
Director, Financial Markets and Community Investments: 
U.S. Government Accountability Office: 
441 G Street, NW: 
Washington, DC 20548: 

Dear Ms. Cackley: 

The Department of Veterans Affairs (VA) has reviewed the Government
Accountability Office's (GAO) draft report, "Homelessness: 
Fragmentation and Overlap in Programs Highlight the Need to Identify, 
Assess, and Reduce Inefficiencies" (GAO-12-491) and is providing 
comments and technical comments in the enclosure. 

VA appreciates the opportunity to comment on your draft report. 

Sincerely, 

Signed by: 
John R. Gingrich: 
Chief of Staff: 

Enclosure: 

[End of letter] 

Department of Veterans Affairs (VA) Comments to Government 
Accountability Office (GAO) Draft Report: "Homelessness: Fragmentation 
and Overlap in Programs Highlight the Need to identify, Assess, and 
Reduce inefficiencies" (GAO-12-491): 

GAO recommendation: The Interagency Council and the Office of 
Management and Budget—-in conjunction with the Secretaries of HHS, 
HUD, Labor, and VA-—should consider examining inefficiencies that may 
result from overlap and fragmentation in their programs for persons 
experiencing homelessness, As a starting point, the agencies could use 
the program information from this report to further analyze the 
effects of overlap and fragmentation. The results of this assessment 
could be used to take actions to reduce any identified inefficiencies 
and therefore better leverage their resources. Actions may include 
streamlining services offered within specific programs or by agencies, 
identifying programs that could benefit from further research of 
evaluations, or consolidating programs or services to reduce 
administrative costs. 

VA comment: Concur. VA will work with the Interagency Council on 
Homelessness and with other Federal agencies that provide programs and 
services to homeless Veterans to identify opportunities to streamline 
programs and services. 

[End of section] 

Appendix IX: Comments from the United States Interagency Council on 
Homelessness: 

United States Interagency Council on Homelessness: 

May 3, 2012: 

Ms. Alicia Puente Cackley, Director: 
Financial Markets and Community Investments: 
U.S. Government Accountability Office: 
441 G Street, NW: 
Washington, DC 20548: 

Dear Ms. Cackley: 

USICH appreciates the opportunity to comment on the Government 
Accountability Office (GAO) May 2012 draft report,' Homelessness: 
Fragmentation and Overlap in Programs Highlight the Need to
Identify, Assess, and Reduce Inefficiencies' (GAO-12-491). The report 
recommends that the U.S. Interagency Council on Homelessness (USICH), 
"in conjunction with HHS, HUD, Labor, and VA, should consider taking 
actions to reduce inefficiencies, such as streamlining overlapping 
services and identifying programs that could benefit from further 
research or evaluations." The report also recommends that
USICH "and its members should incorporate additional elements into 
updates to the federal strategy or in implementation and planning 
documents to help set priorities, measure results, and better ensure 
accountability." 

USICH concurs with the GAO's assessment that there is not duplication 
among federal programs since federal resources and capacity are 
insufficient to address the needs of all people at-risk of or 
experiencing homelessness. 

USICH agrees that improved collaboration and coordination across the 
federal government is vital to preventing and ending homelessness. 
That is why both collaboration and coordination are two fundamental 
elements in Opening Doors: Federal Strategic Plan to Prevent and End 
Homelessness. Over the last two years, unprecedented collaboration and 
coordination has occurred across and within the Council's 19 member 
agencies. This alignment improves both the efficiency and effective 
use of government resources. In addition to the interagency work 
referenced in the report on common vocabulary, data standard, and 
transition to HMIS, agencies have come together to create a federal 
framework to end youth homelessness, improve program utilization and 
data collection, and reduce the time it takes to house Veterans in the 
HUD-VASH program. In our commitment to be transparent, USICH has 
provided extensive detail on these efforts. 

As you state in the report, USICH's Congressional mandate is to 
coordinate the federal response to homelessness. USICH agrees that 
there may be inefficiencies in the way that separate programs have 
been established and operate across different federal agencies to 
address various aspects of homelessness since these programs are 
statutorily mandated. While USICH is engaged in multiple projects to 
improve coordination across programs and agencies, it is not within 
the agency's authority to streamline what you consider overlapping 
services. 

USICH released Opening Doors on June 22, 2010. It was an extraordinary 
effort reflecting public engagement, review of the research, and 
consensus building across 19 federal agencies. The day after
Opening Doors was released, we began the work of implementation. 
Opening Doors itself is a statement of USICH's commitment to the 
vision that no one should experience homelessness—no one should be 
without a safe, stable place to call home. It is a statement of what 
needs to be done and why we, in partnership with the private sector 
and all levels of government, need to act urgently. 

In implementing Opening Doors, USICH is setting priorities, 
determining how to measure progress and results, and how to inspire 
cities, counties, states, tribes, regions, and federal agencies to 
identify what they can and should do and create mechanisms for follow-
through. Your report suggests that the absence of a detailed 
implementation plan in Opening Doors raises questions about whether 
USICH is implementing the Plan strategically. USICH believes there is 
ample evidence in the respective HUD and VA strategic plans and annual 
performance goals, the HUDStat process, and the President's budget 
proposals to demonstrate the thoughtful and accountable way in which 
USICH and its member agencies are collectively approaching 
implementation. Furthermore, USICH has provided extensive 
documentation on its implementation progress in its 2011 Annual Update 
to Opening Doors. The forthcoming 2012 Annual Update will provide 
similar extensive documentation that will be made available per 
USICH's statutory requirement. Within the last two years, USICH has 
also significantly improved its online communications (website, e-
newsletter, webinar series, social media, and blog) to provide real-
time updates on its implementation efforts for its stakeholders and 
the public. 

Since the majority of targeted homelessness funding is in HUD and VA, 
and the VA programs are available only to Veterans because of their 
military service. Because these programs are targeted towards 
different population groups, USICH thinks your framework and 
definitions of fragmentation and overlap are misleading according to 
standard usage of those terms. In our discussion, you said there is a 
possibility of "good fragmentation." USICH is not sure that will be 
self-evident to the public. The fact is funding for programs to 
prevent and end homelessness is not commensurate with need. Better 
coordination across programs is imperative, but coordination and 
increased efficiency alone will not fill this gap in resources and 
federal capacity. 

USICH agrees that research and evaluation are critical to using public 
resources as efficiently as possible and continuing to learn about 
effective interventions. Across the Council's member agencies, there 
has been a strong commitment to research and to implement innovative 
practices. This is reflected by the volume of research and projects 
undertaken, but it is not reflected in your report. 

The innovative research and evaluation includes work being done 
through HUD's Office of Policy Development and Research, NHS' Office 
of the Assistant Secretary for Planning and Evaluation, and the VA 
National Center on Homelessness Among Veterans, which informs program 
policy and practice for funds managed in other parts of these 
departments. While the report notes a handful of studies, there are 
ground-breaking studies that are critical to our efforts to end 
homelessness that were not mentioned including SAMSHA's evaluation of 
the Cooperative Agreements to Benefit Homeless Individuals, HUD's 
study on the Impact of Housing & Services Intervention on Homeless 
Families, and the HUD-VASH Evaluation and Exit Study. 

In the report you state that you consider a program to be targeted if 
it is "one that provided assistance exclusively to those persons 
experiencing homelessness or at-risk for homelessness." USICH 
questions whether there was a specific understanding of "at-risk" in 
deeming the FEMA Emergency Food and Shelter Program or VA foreclosure 
program as targeted. Many people who receive assistance from food 
shelves or who face foreclosure have low-incomes but are not at-risk 
of becoming homeless. 

USICH also thinks the purpose and function of all the property 
disposition programs would be better examined separate from the 
targeted homelessness housing and service programs. Including more 
programs in your review makes it appear that there is more 
fragmentation and overlap than actually exists. Therefore, USICH 
disagrees with GAO's assertion regarding the extent of fragmentation. 

Finally, your report links the need for case management and navigation 
to the fact of multiple agencies having targeted homelessness programs 
(characterized in your report as fragmented). USICH believes that the 
complexity of people's needs is the primary reason why case management 
is needed. This is particularly true for persons with chronic 
conditions and disabilities who have multiple challenges that require 
multiple systems working in concert. It is more than just a housing 
need, more than just health care, more than just a job or income 
support. 

USICH has also provided you with specific comments on areas where we 
are questioning the facts, completeness, or possible implications of 
statements in your report. We appreciate the dialogue with the GAO and 
I am available to discuss this letter or those comments. 

In conclusion, USICH strongly believes that significant progress has 
been made—where allowed by statute— to coordinate policies and 
programs across the federal government, at regional, state, and local 
levels. The Council will not be content that we have done everything 
to implement this Plan strategically, using data and evaluation to 
guide us, until no one experiences homelessness and everyone has a 
safe and stable place to call home. 

USICH appreciates the opportunity to respond to this report. 

Sincerely, 

Signed by: 

Barbara Poppe: 
Executive Director: 

[End of section] 

Appendix X: GAO Contact and Staff Acknowledgments: 

GAO Contact: 

Alicia Puente Cackley, (202) 512-8678 or cackleya@gao.gov. 

Staff Acknowledgments: 

In addition to the contact named above, Paul Schmidt (Assistant 
Director), Elizabeth Curda, Beth Faraguna, Janet Fong, Jill Lacey, 
Marc Molino, John McGrail, Barbara Roesmann, Christine San, and Brian 
Schwartz made key contributions to this report. 

[End of section] 

Footnotes: 

[1] In this report, we use "supportive services" to include all 
nonhousing services that may assist persons experiencing homelessness. 

[2] See GAO, Opportunities to Reduce Potential Duplication in 
Government Programs, Save Tax Dollars, and Enhance Revenue, 
[hyperlink, http://www.gao.gov/products/GAO-11-318SP] (Washington, 
D.C.: Mar. 1, 2011), 129-133. 

[3] Pub. L. No. 111-139, § 21, 124 Stat. 29 (2010), 31 U.S.C. § 712 
Note. 

[4] We obtained information from eight agencies that administered 
targeted and mainstream programs and an additional two agencies that 
administered only mainstream programs. 

[5] See GAO, Rural Homelessness: Better Collaboration by HHS and HUD 
Could Improve Delivery of Services in Rural Areas, [hyperlink, 
http://www.gao.gov/products/GAO-10-724] (Washington, D.C.: July 20, 
2010); Homelessness: A Common Vocabulary Could Help Agencies 
Collaborate and Collect More Consistent Data, [hyperlink, 
http://www.gao.gov/products/GAO-10-702] (Washington, D.C.: June 30, 
2010); and [hyperlink, http://www.gao.gov/products/GAO-11-318SP]. 

[6] See GAO, Combating Terrorism: Evaluation of Selected 
Characteristics in National Strategies Related to Terrorism, 
[hyperlink, http://www.gao.gov/products/GAO-04-408T] (Washington, 
D.C.: Feb. 3, 2004); Financial Literacy and Education Commission: 
Further Progress Needed to Ensure an Effective National Strategy, 
[hyperlink, http://www.gao.gov/products/GAO-07-100] (Washington, D.C.: 
Dec. 4, 2006); Influenza Pandemic: Further Efforts Are Needed to 
Ensure Clearer Federal Leadership Roles and an Effective National 
Strategy, [hyperlink, http://www.gao.gov/products/GAO-07-781] 
(Washington, D.C.: Aug. 14, 2007); Maritime Security: National 
Strategy and Supporting Plans Were Generally Well-Developed and Are 
Being Implemented, [hyperlink, http://www.gao.gov/products/GAO-08-672] 
(Washington, D.C.: June 20, 2008), and National Capital Region: 2010 
Strategic Plan is Generally Consistent With Characteristics of 
Effective Strategies, [hyperlink, 
http://www.gao.gov/products/GAO-12-276T] (Washington, D.C.: Dec. 7, 
2011). 

[7] The Interagency Council was established by title II of the 
McKinney-Vento Act, Pub. L. No. 100-77 § 201, as the "Interagency 
Council on the Homeless." In 2004, Congress renamed it the "United 
States Interagency Council on Homelessness." Pub. L. No. 108-199, 
Division G, § 216 (Jan. 23, 2004). 

[8] The members of the Interagency Council are from the Departments of 
Agriculture, Commerce, Defense, Education, Energy, Health and Human 
Services, Homeland Security, Housing and Urban Development, Interior, 
Justice, Labor, Transportation, and Veterans Affairs; Corporation for 
National and Community Service; General Services Administration; 
Office of Management and Budget; Social Security Administration; U.S. 
Postal Service; and the White House Office of Faith-Based and 
Community Initiatives (now known as the White House Office of Faith-
Based and Neighborhood Partnerships). 

[9] Pub. L. No. 111-22 § 1001, et seq. (May 20, 2009). 

[10] 42 U.S.C. 11313. 

[11] See [hyperlink, http://www.gao.gov/products/GAO-10-702]. 

[12] 42 U.S.C. 5701 et seq. and 42 U.S.C. 9831 et seq. 

[13] Pub. L. No. 111-139, § 21, 124 Stat. 29 (2010), 31 U.S.C. § 712 
Note. 

[14] See [hyperlink, http://www.gao.gov/products/GAO-11-318SP] and 
2012 Annual Report: Opportunities to Reduce Duplication, Overlap and 
Fragmentation, Achieve Savings, and Enhance Revenue, [hyperlink, 
http://www.gao.gov/products/GAO-12-342SP] (Washington, D.C.: Feb. 28, 
2012). Homelessness programs were not covered in detail in [hyperlink, 
http://www.gao.gov/products/GAO-12-342SP]. We also covered 
homelessness programs in our follow-up to the 2011 report, see GAO, 
Status of Actions Taken to Reduce Duplication, Overlap, and 
Fragmentation, Save Tax Dollars, and Enhance Revenue, [hyperlink, 
http://www.gao.gov/products/GAO-12-453SP] (Washington, D.C.: Feb 28, 
2012), 49. 

[15] FEMA is an agency within the Department of Homeland Security, 
which is a member of the Interagency Council. 

[16] Obligations are defined as definite commitments that create a 
legal liability of the government for the payment of goods and 
services ordered or received. 

[17] Most programs provide assistance through grants, meaning federal 
agencies provide funds to states, localities, or nonprofit 
organizations that in turn provide homelessness services. Some 
programs provide assistance through properties, meaning federal 
properties are transferred or sold to entities that in turn provide 
homelessness services. 

[18] As previously discussed, this report does not include all 
mainstream programs that can serve homeless people because some 
programs did not meet all the criteria included in our definition. 

[19] Runaway and Homeless Youth Programs age eligibility requirements 
vary by subprogram. For example, the Basic Center Program serves 
youths up to age 18, while the Transitional Living Program serves 
youths from age 16 to age 22. 

[20] HUD manages its Homeless Assistance Grants under its Office of 
Special Needs Assistance Programs and the HUD-VASH program under the 
Office of Public and Indian Housing. HHS manages some homelessness 
programs under the Substance Abuse and Mental Health Services 
Administration and others under the Administration for Children and 
Families and Health Resources and Services Administration. VA manages 
some programs under the Veterans Health Administration and others 
under the Veterans Benefits Administration. 

[21] See [hyperlink, http://www.gao.gov/products/GAO-10-724]. 

[22] See GAO, Performance Measurement and Evaluation: Definitions and 
Relationships, [hyperlink, http://www.gao.gov/products/GAO-11-646SP] 
(Washington, D.C.: May 2011). 

[23] VA's Acquired Property Sales for Homeless Providers program 
reported that it did not collect performance information, but 
collected other information such as number of properties transferred. 

[24] The data for numbers of homeless served are not comparable across 
programs because program staff used different approaches and reporting 
periods to collect this information. For example, some programs 
reported actual data according to annual reports from grant 
recipients, while others estimated the expected number of participants 
or reported frequency of services. Some programs collect data by 
fiscal year (October 1 through September 30) while other programs 
collect data by program year (July 1 through June 30) or other 
reporting period. Additionally, some programs indicated concerns with 
the reliability of the data for reasons such as the lack of 
independent verification of grantee-generated data, the possibility 
that the data included multiple visits by a homeless individual, or 
the process for collecting and submitting information. 

[25] See [hyperlink, http://www.gao.gov/products/GAO-10-702]. 

[26] See [hyperlink, http://www.gao.gov/products/GAO-11-646SP]. 

[27] ICF International and Advocates for Human Potential, Homeless 
Veterans Reintegration Program Effectiveness Study, a report prepared 
for the Department of Labor (Dec. 23, 2009). 

[28] This issue specifically refers to Labor-funded positions in state 
workforce one-stop agencies designed to support disabled veteran and 
veteran employment, respectively. 

[29] According to the evaluation, common measures are a consistent 
approach to measuring outcomes for employment programs. Labor 
introduced common measures to grantees in 2006 and began requiring 
grantees to report specific common measures during program year 2006. 
Labor provides regular training and technical assistance to support 
the use of common measures. 

[30] MANILA Consulting Group, Inc., The 2005 National Evaluation of 
the Projects for Assistance in Transition from Homelessness (PATH) 
Formula Grant Program, Final Report, a report prepared for the 
Department of Health and Human Services (April 2009). 

[31] The Northeast Performance Evaluation Center issues annual reports 
on three VA homelessness programs. The programs include the 
Domiciliary Care for Homeless Veterans Program, the Health Care for 
Homeless Veterans Program, and the Homeless Veterans Grants and Per 
Diem Program. According to VA officials, these reports do not by 
themselves represent a complete formal evaluation but are monitoring 
reports of program operations. The reports provide the program office 
with feedback regarding the specialized services offered. 

[32] 42 U.S.C §§ 11311. 

[33] The executive director was appointed in October 2009. The 
meetings took place in June and October 2009; February, May, November, 
and December 2010; and March, July, September, and December 2011. 

[34] See U.S. Interagency Council on Homelessness, Opening Doors: 
Federal Strategic Plan to Prevent and End Homelessness (Washington, 
D.C.: June 2010). 

[35] See U.S. Interagency Council on Homelessness, Opening Doors: 
Federal Strategic Plan to Prevent and End Homelessness Update 2011 
(Washington, D.C.: October 2011). 

[36] [hyperlink, http://www.gao.gov/products/GAO-10-702]. 

[37] See [hyperlink, http://www.gao.gov/products/GAO-04-408T], 
[hyperlink, http://www.gao.gov/products/GAO-07-100], [hyperlink, 
http://www.gao.gov/products/GAO-08-672], and [hyperlink, 
http://www.gao.gov/products/GAO-12-276T]. 

[38] Four performance metrics track annual changes in the number of 
(1) persons experiencing homelessness, (2) individuals experiencing 
chronic homelessness, (3) veterans experiencing homelessness, and (4) 
families with children experiencing homelessness, and align well with 
the strategy's four broad goals. The two additional performance 
measures track increases in the number of permanent housing units and 
increases in the employment and participation in mainstream programs 
by persons experiencing homelessness. These two measures align well 
with 2 of the plan's 10 objectives that directly correspond to 
providing affordable housing and improving access to mainstream 
programs. 

[39] Congressional Research Service, Homelessness: Targeted Federal 
Programs and Recent Legislation (Washington, D.C.: July 19, 2011). 

[40] See [hyperlink, http://www.gao.gov/products/GAO-11-474R], 
[hyperlink, http://www.gao.gov/products/GAO-10-724], and [hyperlink, 
http://www.gao.gov/products/GAO-10-702]. 

[41] The five member agencies that do not operate targeted or 
mainstream programs are the Departments of Commerce and 
Transportation, the Office of Management and Budget, the U.S. Postal 
Service, and the White House Office of Faith-Based and Community 
Initiatives. 

[42] These four member agencies are the Departments of Defense, 
Energy, and Interior and the Corporation for National and Community 
Service. 

[43] The Departments of Housing and Urban Development (HUD) and 
Veterans Affairs (VA) administer HUD-VA Supportive Housing (HUD-VASH); 
HUD, the Department of Labor, and VA administer the Veterans Homeless 
Prevention Demonstration Program, and the General Services 
Administration and the Department of Health and Human Services (HHS) 
and HUD administer Federal Surplus Real Property (Title V). For the 
HUD-VASH program, two agencies received questionnaires. Additionally, 
for the demonstration program and Federal Surplus Real Property (Title 
V) three agencies received questionnaires. As a result, the number of 
questionnaires we sent is higher than the number of programs. 

[44] [hyperlink, http://www.gao.gov/products/GAO-11-318SP]. 

[45] For more information on how we have defined performance 
information and program evaluation, see [hyperlink, 
http://www.gao.gov/products/GAO-11-646SP]. 

[46] See [hyperlink, http://www.gao.gov/products/GAO-04-408T], 
[hyperlink, http://www.gao.gov/products/GAO-07-100], [hyperlink, 
http://www.gao.gov/products/GAO-07-781], [hyperlink, 
http://www.gao.gov/products/GAO-08-672], and [hyperlink, 
http://www.gao.gov/products/GAO-12-276T]. 

[End of section] 

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