Youth Homelessness: HUD and HHS Could Enhance Coordination to Better Support Communities

Fast Facts

In the U.S., about 1 in 10 young adults and 1 in 30 minors under age 18 experience homelessness without a parent or caregiver over the course of a year. Homelessness is higher among some groups, such as youth of color and transgender youth.

Although the Departments of Housing and Urban Development and Health and Human Services provide grants to local organizations to operate programs, like shelters or transitional living programs, many youth who are homeless may not be receiving services they may be eligible for.

We recommended that HUD and HHS provide more guidance to local programs on how to help youth who are homeless.

teenager sitting on sidewalk with head in hands

Highlights

What GAO Found

The Departments of Housing and Urban Development (HUD) and Health and Human Services (HHS) have taken steps to coordinate their programs that serve youth experiencing homelessness. These programs include HUD's Continuum of Care program, which funds housing and homelessness services for people of all ages in nearly all communities across the country, and HHS's Runaway and Homeless Youth program, which funds emergency shelters, transitional housing, and supportive services for youth in a few hundred communities. For example, HHS was involved in the development of HUD's Youth Homelessness Demonstration Program, which provides grants to several dozen communities to address youth homelessness. In addition, the agencies integrated data collection for the Runaway and Homeless Youth program into local data systems operated under the Continuum of Care program to help program providers better coordinate client services at the local level.

GAO's review of documents and interviews with local program providers, agency officials, researchers, and advocates identified several challenges in serving youth experiencing homelessness, including both young adults and minors (those under 18). For example:

Under the Continuum of Care program, communities must establish a process, known as coordinated entry, for prioritizing who receives limited housing resources. Many providers of homelessness services reported that their community's process tends to prioritize young adults lower than older adults. This is partly because these processes, following HUD guidance, give higher priority to those who have been homeless longer and who have documented disabilities. HUD has provided some information to communities on serving youth through coordinated entry, but this information largely has not addressed how to ensure that young adults are not consistently prioritized below other groups for housing.

Most providers GAO interviewed reported that minors experiencing homelessness unaccompanied (without a parent or caregiver) do not participate in the coordinated entry process, with several noting there are limited housing options that can serve minors. Some providers and other stakeholders discussed challenges coordinating between the homelessness and child welfare systems to serve this group. However, HUD and HHS have provided limited information about or examples of how providers could coordinate to better serve unaccompanied minors.

Although HUD and HHS have taken some steps to coordinate the Continuum of Care and Runaway and Homeless Youth programs, providers of these programs reported challenges in coordination and communication, including a lack of understanding of one another's programs and a need for more strategic planning on services for youth.

HUD and HHS have acknowledged a need for additional information related to serving youth. Additional support from HUD and HHS in the areas identified above could help to improve coordination and the delivery of services to both young adults and minors at the local level.

Why GAO Did This Study

Youth homelessness is a widespread problem, with one recent study estimating that one in 10 young adults experience some form of homelessness over the course of a year—such as living on the streets or in a shelter or temporarily staying with others. GAO was asked to study youth homelessness. This report examines, among other things, HUD's and HHS's coordination to address youth homelessness and challenges communities face in serving youth through HUD and HHS programs.

GAO analyzed federal agency documents related to homelessness efforts; conducted structured interviews with a nongeneralizable sample of 24 local homelessness providers, selected to reflect communities of different sizes and with different types of programs for youth; and interviewed other local program staff, youth homelessness researchers and advocates, and federal officials.

Recommendations

GAO makes 10 recommendations to improve services for youth experiencing homelessness, including that HUD work with HHS to provide additional information or examples to local communities in the following areas: serving young adults through coordinated entry processes, coordinating to serve unaccompanied minors, and coordinating their programs. HUD generally agreed with four recommendations. HUD neither agreed nor disagreed with two recommendations, but described intended plans to help address these areas. HHS agreed with GAO's recommendations.

Recommendations for Executive Action

Agency Affected	Recommendation	Status
Office of Special Needs Assistance Programs	HUD's Deputy Assistant Secretary for Special Needs, in coordination with HHS's Family and Youth Services Bureau, should develop additional information for homelessness providers on how the coordinated entry process can more effectively serve youth. This information should address (1) how to help ensure that youth are not consistently prioritized below older adults for housing and services in coordinated entry systems and (2) how CoCs can work with RHY providers and other stakeholders to serve youth who are not prioritized for housing or are not eligible for housing under CoC program rules. (Recommendation 1)	Open HUD neither agreed nor disagreed with this recommendation from GAO-21-540 (September 2021) and has taken limited steps towards implementing it. In February 2023, HUD said that it had published several resources related to collaborations to better serve youth experiencing homelessness and that it was developing additional publications, including on the topic of combining resources from the RHY program and HUD's Youth Homelessness Demonstration Program (YHDP) to support stronger youth systems. HUD added that it planned to develop additional technical assistance resources that address prioritizing youth in coordinated entry systems, including examples from YHDP communities. As of February 2026, HUD had not provided additional information on the status of their efforts. To close this recommendation as implemented, HUD should coordinate with HHS to produce specific and available information on how CoCs can more effectively serve youth through coordinated entry systems, including how they can help ensure that youth are not consistently prioritized below older adults and how they can coordinate to serve youth who are not prioritized or not eligible for CoC resources. Financial or other benefits have not been attained. Implementing this recommendation could help communities better ensure that youth experiencing homelessness are able to access the assistance they need through the coordinated entry system.
Office of Special Needs Assistance Programs	HUD's Deputy Assistant Secretary for Special Needs should provide additional information to CoCs to clarify how they could meet the standards outlined in regulation for serving people in Category 3 of HUD's definition of homelessness. This information should include examples that illustrate specific ways that CoCs could demonstrate that use of funds to serve these youth and families meets Category 3 requirements, including methods CoCs could use to develop estimates of cost-effectiveness. (Recommendation 2)	Open When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
United States Interagency Council on Homelessness	The Interim Executive Director of USICH, in coordination with HUD's Office of Special Needs Assistance Programs and HHS's Office of the Assistant Secretary for Planning and Evaluation, should establish a timeline for developing and disseminating information, such as an interactive decision-making tool, to help providers accurately identify the federal homelessness assistance programs for which individuals seeking services are eligible. (Recommendation 3)	Open USICH agreed with this recommendation from GAO-21-540 (September 2021) but does not currently plan to implement it. In a May 2022 report to Congress, USICH stated that it had reassessed the feasibility and utility of developing an interactive tool and had determined that the utility of such a tool would be limited in comparison to the resources needed to create and maintain it. As of February 2023, USICH did not intend to develop an interactive decision-making tool. However, USICH noted that it planned to coordinate with other federal agencies to review their various definitions of homelessness as part of the implementation of the federal strategic plan to prevent and end homelessness. As of February 2026, USICH had not provided additional information on the status of the recommendation. To close this recommendation as implemented, USICH should coordinate with HUD and HHS to establish a timeline for disseminating information (which could be an interactive tool or a non-interactive written resource) that would help service providers understand and apply the different eligibility criteria for federal homelessness assistance programs. Financial or other benefits have not been attained. Implementing this recommendation could help ensure that individuals seeking services are appropriately referred to the programs for which they are eligible.
Office of Special Needs Assistance Programs	HUD's Deputy Assistant Secretary for Special Needs, in coordination with USICH and HHS's Office of the Assistant Secretary for Planning and Evaluation, should establish a timeline for developing and disseminating information, such as an interactive decision-making tool, to help providers accurately identify the federal homelessness assistance programs for which individuals seeking services are eligible. (Recommendation 4)	Open HUD generally agreed with this recommendation from GAO-21-540 (September 2021) and stated that the effort to develop an interactive tool should be coordinated by USICH, given USICH's expertise as a coordinating agency. Since our report was issued, USICH has determined that the development of an interactive decision-making tool is not a priority. In February 2023 HUD stated that, because the effort to create such a tool is an interagency function, HUD does not believe this work will go forward. However, HUD noted that it planned to participate with USICH and other agencies in reviewing federal homelessness definitions as part of the effort to implement the federal strategic plan to prevent and end homelessness. As of February 2026, HUD had not provided additional information on the status of their efforts. To close this recommendation as implemented, HUD should coordinate with USICH and HHS to establish a timeline for disseminating information (which could be an interactive tool or a non-interactive written resource) that would help service providers understand and apply the different eligibility criteria for federal homelessness assistance programs. Financial or other benefits have not been attained. Implementing this recommendation could help ensure that individuals seeking services are appropriately referred to the programs for which they are eligible.
Department of Health and Human Services	HHS's Assistant Secretary for Planning and Evaluation, in coordination with USICH and HUD's Office of Special Needs Assistance Programs, should establish a timeline for developing and disseminating information, such as an interactive decision-making tool, to help providers accurately identify the federal homelessness assistance programs for which individuals seeking services are eligible. (Recommendation 5)	Open – Partially Addressed HHS agreed with this recommendation from GAO-21-540 (September 2021). However, since our report was issued, USICH has determined that the development of an interactive decision-making tool is not a priority. Since then, HHS has taken steps to share information and resources about federal homelessness assistance programs (including HHS programs and other agencies' programs) on a dedicated webpage. In May 2024, HHS, in collaboration with HUD, USICH, and the Departments of Education and Justice, updated Youth.gov's Homelessness and Housing Insecurity webpage to include information around eligibility for federal programs serving young people experiencing homelessness. The webpage includes information and resources that can be used to help determine youth eligibility for federal programs. HHS staff said that, on average, Youth.gov receives between 200,000 and 300,000 visits each month. Further, as of April 2025, HHS has been working to develop an online resource that compares eligibility requirements across HHS, HUD, and Department of Education programs for youth experiencing homelessness. HHS has taken actions that contribute to the closure of the recommendations as implemented. These actions are sufficient to support the recommendation being updated to an open-partially addressed status. To close this recommendation as implemented, HHS should continue to coordinate with USICH and HUD to establish a timeline for disseminating information that would better help service providers understand and apply the different eligibility criteria for federal homelessness assistance programs. Service providers are challenged to understand and apply different definitions of eligibility across programs. A more effective resource for providers would include simpler descriptions of eligibility. Additional examples of how to apply differing eligibility rules and a visual presentation of the information that more closely aligns to the original intent of the interactive decision making tool would also help ensure that individuals seeking services are appropriately referred to the programs for which they are eligible. Financial or other benefits have not been attained.
Office of Special Needs Assistance Programs	HUD's Deputy Assistant Secretary for Special Needs, in coordination with HHS's Family and Youth Services Bureau and Children's Bureau, should develop information for local providers that includes examples of how communities have addressed the needs of unaccompanied minors experiencing homelessness, including the role of the CoC program and other entities (such as RHY providers and child welfare) in serving this population in these communities. (Recommendation 6)	Open HUD generally agreed with this recommendation from GAO-21-540 (September 2021) and has taken some steps towards implementing it. In March 2023, HUD stated that it has met with FYSB and the Children's Bureau several times to identify best practices and intersections between HHS and HUD programs to serve minors experiencing homelessness. Based on these meetings, HUD determined that it would develop products on this topic. HUD provided a draft of a document that addresses serving minors, which HUD said it was editing before its release. HUD added that it has already published a number of articles that include examples of how communities have used Youth Homelessness Demonstration Program (YHDP) and other funding to better serve youth experiencing homelessness (however, these products are not specific to minors). HUD noted that it was also planning to develop a "best practices" series that would focus on lessons learned for serving youth at risk of or experiencing homelessness. As of February 2026, HUD had not provided additional information on the status of their efforts. To close this recommendation as implemented, HUD should coordinate with FYSB and the Children's Bureau to develop specific and available information for local providers that includes examples of how communities have addressed minors experiencing homelessness. Financial or other benefits have not been attained. Implementing this recommendation could help communities identify ways to better coordinate services for this population.
Department of Health and Human Services	HHS's Associate Commissioners for the Family and Youth Services Bureau and for the Children's Bureau, in coordination with HUD's Office of Special Needs Assistance Programs, should develop information for local providers that includes examples of how communities have addressed the needs of unaccompanied minors experiencing homelessness, including the role of the CoC program and other entities (such as RHY providers and child welfare) in serving this population in these communities. (Recommendation 7)	Open HHS agreed with this recommendation from GAO-21-540 (September 2021) and has taken some steps towards implementing it. In February 2023, FYSB said it had held several meetings with the Children's Bureau (CB), and HUD to discuss ways to gather information from communities about how they have addressed the needs of unaccompanied minors experiencing homelessness, including the role of the CoC program, RHY providers, and child welfare agencies, and to identify best practices. FYSB also stated that it had begun discussions with HHS's Administration for Children and Families (ACF) to potentially update ACF's 2014 memorandum on providing services for minors who run away from foster care. HHS added that, in October 2023, FYSB and CB provided feedback and edits to a joint CB-FYSB-HUD technical assistance brief focused on considerations for serving unaccompanied minor youth. As of April 2025, the 2014 ACF memorandum had not been updated, and the joint technical assistance brief had not been published. FYSB said that HHS leadership will need to provide guidance and approval in prioritizing the development and publication of any future joint HUD technical assistance, memoranda, and other sub-regulatory guidance. However, in April 2025, FYSB said that ACF and HUD have worked closely in ongoing joint efforts to increase utilization of Foster Youth to Independence (FYI) housing vouchers, including a joint webinar and an Information Memorandum on the voucher program. FYSB also noted that it had participated in internal quarterly meetings with CB and other ACF offices to discuss programs and initiatives that supported a comprehensive approach to youth homelessness. Further, in September 2023, FYSB and CB presented at HUD's Office Hours meeting for HUD homeless assistance program grantees on updated Supplemental Nutrition Assistance Program (SNAP) time-limit and work requirement exceptions for youth experiencing homelessness and foster care. FYSB added that it had participated in a joint presentation with USICH and the Department of Education at the 2024 National Association for the Education of Homeless Children and Youth Conference. At this conference, FYSB presented on RHY programs and the prevention of youth homelessness. As of February 2026, HHS had not provided additional updates on the status of their efforts. To close this recommendation as implemented, FYSB and the Children's Bureau should coordinate with HUD to develop specific and available information for local providers that includes examples of how communities have addressed minors experiencing homelessness. Financial or other benefits have not been attained. Implementing this recommendation could help communities identify ways to better coordinate services for this population.
Office of Special Needs Assistance Programs	HUD's Deputy Assistant Secretary for Special Needs, in coordination with HHS's Family and Youth Services Bureau, should provide communities with additional information on strategies and promising practices for coordinating their CoC and RHY programs' efforts to address youth homelessness. (Recommendation 8)	Open HUD generally agreed with this recommendation from GAO-21-540 (September 2021) and has taken some steps towards implementing it. In February 2023, HUD said that steps it has taken include HUD staff working with HHS colleagues to develop technical assistance products that highlight how youth providers can develop partnerships to enhance the services offered to youth. HUD said that in December 2022 it published the first four of these products, and provided drafts of additional documents in the editing stage which address topics such as combining RHY and Youth Homelessness Demonstration Program resources to support stronger youth systems. HUD added that it had met with HHS to discuss best practices and how to share these with youth-serving providers. Further, in November 2022, HUD presented on coordination and partnerships, including CoC/RHY partnerships, at a conference for RHY grantees. As of February 2026, HUD had not provided additional information on the status of their efforts. To close this recommendation as implemented, HUD should produce specific and available information with strategies and promising practices for coordinating CoC and RHY programs' efforts to address youth homelessness. Financial or other benefits have not been attained. Implementing this recommendation could help communities that face challenges in working together to create a cohesive and integrated local service system for youth experiencing homelessness to implement a more unified approach.
Department of Health and Human Services	HHS's Associate Commissioner for the Family and Youth Services Bureau, in coordination with HUD's Office of Special Needs Assistance Programs, should provide communities with additional information on strategies and promising practices for coordinating their CoC and RHY programs' efforts to address youth homelessness. (Recommendation 9)	Open HHS generally agreed with this recommendation from GAO-21-540 (September 2021) and has taken some steps towards implementing it. In February 2023, HHS said that steps it has taken include convening regular and ongoing meetings with HUD to identify ways to provide communities with additional information on strategies and promising practices for coordinating their CoC and RHY programs, and that HHS and HUD were identifying ways to learn about strategies and promising practices in communities that have strong CoC and RHY coordination. HHS said that FYSB and HUD announced new awardees receiving RHY funding and YHDP funding, and it would complete a cross-walk to better understand organizations that leverage both funding opportunities. HHS also said that HUD, with FYSB's support, was developing a training and technical assistance resource to share ways communities have leveraged RHY programs to support implementation of HUD's YHDP. As of April 2025, this resource had not been published. FYSB said that HHS leadership will need to provide guidance and approval in prioritizing the development and publication of any joint HUD technical assistance, memoranda, and other sub-regulatory guidance. Additionally, HHS said that HUD presented to RHY programs on promising practices and lessons learned from communities that have implemented the YHDP with partnerships with RHY programs during the November 2022 Runaway and Homeless Youth Training and Technical Assistance National Training. As of February 2026, HHS has not provided additional information on the status of their efforts. To close this recommendation as implemented, HHS should produce specific and available information with strategies and promising practices for coordinating CoC and RHY programs' efforts to address youth homelessness. Financial or other benefits have not been attained. Implementing this recommendation could help communities who face challenges in working together to create a cohesive and integrated local service system for youth experiencing homelessness to implement a more unified approach.
Office of Special Needs Assistance Programs	HUD's Deputy Assistant Secretary for Special Needs, in coordination with HHS's Family and Youth Services Bureau, should develop a set of optional youth-specific performance measures that CoCs could use to assess their local efforts to address youth homelessness. HUD should also provide CoCs with information on how they might track these measures. (Recommendation 10)	Open HUD neither agreed nor disagreed with this recommendation from GAO-21-540 (September 2021) and has taken limited steps towards implementing it. In February 2023, HUD said that it was considering publishing lessons learned from the Youth Homelessness Demonstration Program (YHDP), where it mandated that grantees use additional data elements that are currently collected in the RHY programs. HUD said that it planned to publish guidance in spring 2023 regarding using RHY data elements, which it hoped would help non-YHDP-funded youth providers consider additional data elements that they could collect to better serve youth. As of February 2026, HUD had not provided additional information on the status of their efforts. To close this recommendation as implemented, HUD will need to coordinate with HHS and take actions that directly demonstrate efforts to develop optional youth-specific performance measures and provide CoCs with information on how they might track the measures. Financial or other benefits have not been attained. Implementing this recommendation could help communities better monitor the performance of local programs that serve youth.