Update on Student Housing Assistance

AN LAO REPORT Update on Student Housing Assistance GABRIEL PETEK | LEGISLATIVE ANALYST | MAY 2024 SUMMARY State Recently Created Student Housing Assistance Programs. In 2019-20, the state created rapid rehousing programs at the University of California (UC), California State University (CSU), and California Community Colleges (CCC) to assist students experiencing housing insecurity or homelessness. In addition, the state created basic needs programs at UC in 2019-20 and at CSU and CCC in 2021-22 primarily to provide students with housing and food assistance. In 2023-24, the state is providing a total of $31 million ongoing General Fund for rapid rehousing programs and $85 million ongoing General Fund for basic needs programs across the segments. State law requires each segment to report annually on these programs, with specific reporting requirements varying by segment and program. In this brief, we examine how each segment is implementing these programs and review the available outcomes data. UC Implementation Update. UC is allocating both rapid rehousing and basic needs funds to all ten of its campuses. Campuses are using these funds to provide various types of housing assistance, including emergency grants, emergency housing, and case management. Given UC (like the other segments) is receiving state funding to provide these types of services for the first time, a notable share of program costs is for staffing and building the capacity to implement the programs. Relative to the other segments, UC is more likely to provide housing assistance using on-campus resources, including its own staff and residence halls. In 2022-23, UC reports 6,604 students received housing assistance through its basic needs program and 4,706 students received housing assistance through its rapid rehousing program, with likely duplication among the two counts. CSU Implementation Update. In contrast to UC, CSU awarded rapid rehousing funds competitively to 8 of its 23 campuses. These campuses are hiring program staff as well as working with community partners to provide housing identification, rental subsidies, and case management to a small number of high-need students. Across the first two years of the program, CSU reports 342 students enrolled in its rapid rehousing program. CSU is allocating basic needs funds to all 23 of its campuses to provide various types of housing assistance (including temporary emergency housing and emergency grants) to a broader group of students. In 2022-23, CSU reports about 14,000 students received housing assistance through this program. CCC Implementation Update. Like CSU, CCC awarded rapid rehousing funds competitively, with 25 of the 115 local community colleges currently participating in the program. In 2021-22, CCC reports 519 students received rapid rehousing assistance across the 14 participating colleges. CCC is allocating basic needs funds to all 115 local colleges, with the majority of these funds going toward staffing and operating colleges’ basic needs centers. CCC reports students accessed housing assistance through these basic needs centers 4,156 times during summer and fall 2022 across the 60 colleges participating in the first round of reporting. Recommend Refining Program Reporting Requirements. Although the segments are generally reporting helpful information on campus funding allocations, use of funds, and program participation, key information is lacking—particularly on outcomes. We recommend refining statutory reporting requirements for the these programs in several ways, including requiring each segment to report on a consistent and clearly defined set of measures related to participants’ housing outcomes and academic outcomes. For example, the Legislature could require each segment to report how many participating students maintain stable housing through the academic term and graduate or remain enrolled the following year. These types of data would allow the Legislature to better understand the cost-effectiveness of these programs. www.lao.ca.gov 1 AN LAO REPORT INTRODUCTION Brief Focuses on Rapid Rehousing and We begin by providing background on student Student Basic Needs Programs. In this brief, housing insecurity, the rapid rehousing program, we cover the student housing assistance provided and the basic needs program. Then, we provide an through the rapid rehousing and basic needs implementation update on the housing assistance programs at UC, CSU, and CCC. The state began provided through both programs at UC, CSU, and funding these programs within the past five years. CCC. We end by recommending certain changes This brief reviews the available information about how to statutory reporting requirements that could help these recently created programs are working and the the Legislature monitor and improve the programs extent to which they are meeting program objectives. moving forward. BACKGROUND In this section, we first discuss the available data significant shortage of housing, particularly within on student housing insecurity and homelessness. urban coastal communities. Like other Californians, We then describe the higher education programs college students face housing challenges stemming that can help students with housing. from this shortage of housing and the associated high housing costs. Like other people age 18 to 24, Student Housing Insecurity traditional college-age students also could be Students Facing Various Types of Challenges moving away from their families for the first time, Are Considered Housing Insecure. “Housing which could make them more vulnerable to insecurity” can refer to a range of challenges housing insecurity. related to an individual’s living arrangements. Other Housing Challenges Are Unique to At California’s higher education segments, students Students. Despite these commonalities, college are commonly described as housing insecure students differ from their nonstudent peers in that if they face challenges such as difficulty paying they might relocate to attend college, and they rent or utilities, living in overcrowded units, or might live in different places during the academic needing to move frequently. The higher education year and summer. These factors can complicate segments tend to use “homelessness” to refer more the search for stable housing. College students specifically to lacking a stable place to stay at night. of all ages also are likely to have distinct financial The segments’ definitions of homelessness typically circumstances. Because they are taking classes, include students without a permanent home who they typically do not work as many hours and have are temporarily staying with relatives or friends lower earnings. They may also have additional (“couch surfing”), at hotels or motels, in emergency costs associated with tuition, books, and supplies. shelters or transitional housing, and in places not Though facing higher costs, many college students meant for habitation (such as cars or tents). qualify for financial aid to help with tuition and Some of Students’ Housing Challenges nontuition costs—another factor distinguishing Overlap With Those of Other Californians. them from their nonstudent peers. Housing affordability is a widespread challenge in Data on Student Housing Insecurity Has California, where the average monthly rent is about Limitations. Despite a high degree of legislative 50 percent higher than in the rest of the nation and interest in student housing insecurity, the state about 2.5 million low-income households spend does not have a definitive count of the number of more than 30 percent of their incomes on housing. higher education students experiencing housing While many factors have a role in driving California’s insecurity or a reliable measure of changes over high housing costs, the most important is the time. To derive estimates, UC, CSU, CCC, and the 2 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT California Student Aid Commission have all begun rates from the most recent survey administered conducting surveys. The data from these surveys, by each agency. Rates of students reporting however, have limitations. Most of the surveys had homelessness at some point over the past low response rates, such that the respondents 12 months ranged from 8 percent of respondents might not be representative of the broader student at UC to 24 percent of respondents at CCC. population. Moreover, some surveys limited (These results may not be directly comparable their sample to specific student groups (such as across the segments due to differences across financial aid applicants) that might have a different surveys in methodology, questions, and when likelihood of experiencing housing challenges. they were conducted.) Rates of reported housing Additionally, all of the surveys were administered insecurity or homelessness varied among certain electronically, which might have resulted in certain student groups. For example, surveys at all three students (such as those with less technology segments found that Black students and students access) being less likely to respond. Furthermore, receiving Pell Grants (federal financial aid for few of the surveys have been undertaken regularly, low-income students) reported higher-than-average with results tracked over time to determine rates of homelessness. In addition, the CCC and whether student housing insecurity is increasing UC surveys disaggregated the data by sexual or decreasing. orientation and found that students who are Survey Data Suggest Notable Share lesbian, gay, bisexual, transgender, or queer of Students Face Housing Insecurity. (LGBTQ) reported higher-than-average rates of Recognizing these data limitations, a notable homelessness. The CCC survey also disaggregated share of students surveyed at each segment have the data by age group and found that reported rates reported experiencing housing insecurity and of homelessness were highest among students homelessness. Figure 1 summarizes reported age 26 to 30. Figure 1 Data on Student Housing Insecurity Come From Various Surveys Summary of Most Recent Survey From Each Agency Response Reported Housing Insecurity and Agency Survey Date Survey Sample Ratea Homelessness Ratesb CSAC May 2023 Financial aid applicants from all 5 percent • 65 percent of CCC respondents reported segments housing insecurity. • 52 percent of CSU respondents reported housing insecurity. • 27 percent of UC respondents reported housing insecurity. CCC March - April 2023 CCC students from 88 colleges Not specifiedc • 58 percent of respondents reported housing insecurity. • 24 percent of respondents reported homelessness.d CSU October 2016 - CSU students from all campuses 6 percent • 11 percent of respondents reported February 2017 homelessness.e UC April - August 2022 UC undergraduates from all 24 percent • 8 percent of respondents reported campuses homelessness.e a Includes completed responses only. Respondents may not be representative of broader student population. b Surveys measured whether respondents experienced housing insecurity and/or homelessness at some point over the past 12 months. Surveys generally defined housing insecurity to cover a range of challenges, including difficulty paying rent or utilities, overcrowding, and needing to move frequently. Surveys generally defined homelessness to include students who are couch surfing or staying at hotels or motels, in emergency shelters or transitional housing, and in places not meant for habitation (such as cars or tents). c Although the survey does not specify a response rate, we estimate the respondents reflect 6 percent of total headcount at participating colleges. d A high share of students reporting homelessness also could have reported housing insecurity. e Surveys do not provide estimates of overall housing insecurity rates. CSAC = California Student Aid Commission. www.lao.ca.gov 3 AN LAO REPORT Segments’ Surveys Are Not Comparable to Beyond California, some other states also have Statewide Estimates of Homelessness. The been exploring ways to address student housing most commonly cited measure of homelessness insecurity. Most of these efforts are relatively recent in California comes from a point-in-time count too, with little information compiled nationally about required every other year by the U.S. Department their program designs and effectiveness. of Housing and Urban Development. Based on the State Recently Created Student Rapid most recent point-in-time count, 181,399 people Rehousing Programs. In 2019-20, the state in California (0.5 percent of the total population) created rapid rehousing programs at UC, CSU, and experienced homelessness on a single night in CCC to help address student housing insecurity January 2023. This measure likely undercounts the and homelessness. Traditionally, the term “rapid state’s homeless population because of various rehousing” refers to a specific model for moving factors, including difficulty reaching all homeless people who are homeless into permanent individuals. Notably, the point-in-time count is housing. This model entails (1) finding them not comparable to the reported homelessness housing; (2) providing move-in assistance and rates in the higher education segments’ surveys. rental subsidies, typically for six months or less; Whereas the point-in-time count measures people and (3) offering case management to help them experiencing homelessness on a single night, the maintain stable housing and connect them with segments’ surveys measure people experiencing other relevant support (such as financial literacy, homelessness at any point in the past 12 months. employment, and health care assistance). The The latter figure is higher because many people rapid rehousing programs at the higher education experience temporary episodes of homelessness. segments, however, are somewhat broader. State Moreover, the point-in-time count generally does law authorizes the segments to use program funds not capture people who are couch surfing or for various types of housing assistance, not limited staying in hotels or motels. Couch surfing was to the components of the traditional rapid rehousing by far the most common form of homelessness model. For example, the segments may also use reported in the CCC and UC surveys, and staying the funds for temporary emergency housing and in hotels or motels was the second most common. emergency grants to prevent students from losing (The CSU survey did not report on specific forms their current housing. The target population for of homelessness.) student rapid rehousing is also broader than for the traditional rapid rehousing model, with Student Housing Programs the segments allowed to use program funds to State Involvement in Student Housing Issues support students who are housing insecure but Has Grown in Recent Years. For many decades, not homeless. the state’s primary strategy for promoting college State Has Been Increasing Funding for affordability was to keep student tuition charges Student Rapid Rehousing Programs. As the top low, while providing grants that covered tuition part of Figure 2 shows, the state has increased charges for low-income students. Over the last funding for these programs over the past few decade, however, students have been calling years. In 2023-24, the state is providing a total greater attention to their nontuition costs, including of $31 million ongoing. State law requires the their housing costs. The growing amount of segments to report annually on various aspects of information and advocacy around student housing their rapid rehousing programs, including campus insecurity (including the surveys described above) funding allocations, the number of students served, has prompted the state to create new higher and relevant outcomes. State law does not require education programs. Some of these programs the segments to report more specific fiscal data, focus directly on student housing insecurity and such as the average amount spent to find a student homelessness. As the segments are implementing stable housing or the average monthly housing these types of programs for the first time, much of subsidy provided to participating students. their initial efforts have centered around hiring the staff and building the capacity to implement them. 4 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT resources; the hiring of campus Figure 2 basic needs coordinators to State Has Increased Funding for help students navigate those Rapid Rehousing and Student Basic Needs resources; and direct assistance Ongoing General Fund (In Millions) to students, primarily with covering food and housing costs. State 2019-20 2020-21 2021-22 2022-23 2023-24 law does not specify the types of Rapid Rehousing housing assistance the segments CCCa $9.0 $9.0 $9.0 $19.0 $20.6 are to provide through the basic CSU 6.5 6.5 6.5 6.5 6.8 needs program, meaning the UC 3.5 3.5 3.5 3.5 3.7 segments could use the funds Totals $19.0 $19.0 $19.0 $29.0 $31.1 for similar or different types of Student Basic Needs CCCa — — $30.0b $40.0 $43.3 housing assistance than they CSU —c — 15.0 25.0 26.3 are providing through the rapid UC $15.0 $15.0 15.0 15.0 15.8 rehousing program. As the bottom Totals $15.0 $15.0 $60.0 $80.0 $85.4 part of Figure 2 shows, the state a Proposition 98 General Fund. also has increased funding for b State also provided $100 million one-time Proposition 98 General Fund. c State provided $15 million one-time non-Proposition 98 General Fund. basic needs over the past few years. In 2023-24, the state is providing a total of $85 million State Also Recently Created Student ongoing. State law requires each segment to report Basic Needs Programs. In addition to the rapid annually on its basic needs program. The reporting rehousing programs, the state created an ongoing requirements are somewhat different for UC and student basic needs program at UC in 2019-20 CSU compared to CCC, but all segments are and at CSU and CCC in 2021-22. The statutory required to report on the use of program funds. language for the basic needs programs varies (The box on pages 6 and 7 describes other by segment. In general, these programs are to programs that help students with housing while support the establishment of a basic needs center in college.) on campus where students can access relevant IMPLEMENTATION UPDATES In this section, we provide an implementation enrolls a total headcount of approximately update on the student housing assistance 296,000 students. The San Francisco campus is the provided through the rapid rehousing and basic smallest (enrolling approximately 3,000 students), needs programs at UC, CSU, and CCC. For each whereas the Los Angeles campus is the largest segment, we review the available information on (enrolling approximately 47,000 students). Among campus funding allocations, use of funds, program the three public higher education segments, UC participation, and student outcomes. has the largest share of students living on campus, with its residence halls housing nearly 40 percent of UC all undergraduates. Background on UC System. The UC system UC Is Allocating Rapid Rehousing and Basic has ten campuses, consisting of nine general Needs Funds to Every Campus. UC uses a campuses offering a broad array of academic similar allocation formula for both programs. First, programs for undergraduate and graduate it provides each of its ten campuses with a base students, plus one health sciences campus located amount of funding ($150,000 for rapid rehousing in San Francisco that enrolls primarily graduate and $500,000 for basic needs). Then, it allocates students. Across the ten campuses, UC currently the remainder of the funds largely based on the www.lao.ca.gov 5 AN LAO REPORT estimated number of students experiencing food rental subsidies. Variation among campuses in or housing insecurity at each campus according the types of housing assistance provided likely to UC’s surveys. In 2022-23 (the most recent year reflects differences in their local housing market, reported), rapid rehousing allocations ranged on-campus housing inventory, and availability of from $168,000 at the San Francisco campus to community partners, among other factors. $472,000 at the Berkeley campus. Basic needs Program Funding Primarily Supports Staffing allocations ranged from $563,000 at the San and Direct Student Assistance. UC reports Francisco campus to $1.8 million at the Davis campuses are budgeting 32 percent of basic campus. UC also retained $700,000 from the basic needs funding for staffing—the largest category needs funds for systemwide activities, including of budgeted expenses. Based on campus technical assistance, coordination, and research spending plans, program staff have a variety of and assessment. roles, including managing basic needs programs, Campuses Developed Coordinated Spending operating basic needs centers (including food Plans Across Two Programs. In 2019-20, UC pantries), and providing case management to directed each campus to develop spending plans students. In addition to professional staff, many simultaneously for both the rapid rehousing and campuses are employing student staff to support basic needs funds. Campuses chose to use funds basic needs center operations and outreach. from both programs to provide various types of After staffing, UC reports the second largest housing assistance. (Campuses are also using category of budgeted expenses (27 percent) is for the basic needs funds to provide other types direct student assistance, including emergency of assistance, most notably food assistance.) grants and emergency housing. The remaining Common types of housing assistance that funds are budgeted for other program costs, such campuses are providing include financial assistance as equipment and supplies, outreach activities, with rent and deposits, emergency housing, case and evaluation. UC has not reported a similar management, and tenant education workshops systemwide breakdown of rapid rehousing funds (covering topics such as searching for housing by expense category. Based on a review of campus and understanding leases). Housing assistance spending plans, we estimate a somewhat higher is often provided on a short-term basis, such as share (more than half) of rapid rehousing funds are through one-time emergency grants or temporary going toward direct student assistance. emergency housing. Some campuses also offer long-term housing assistance, such as ongoing Other Programs Also Help Students With Housing State Recently Began Funding Construction of Student Housing Facilities. Beyond the rapid rehousing and basic needs programs covered in this brief, the state also recently began supporting the construction of student housing at all three segments. Such support marks a significant departure from historical practice. Historically, the higher education segments’ student housing facilities have been self-supported, generating their own fee revenue to cover their capital and operating costs. Under the new Higher Education Student Housing program, the state has approved 35 new student housing construction projects (consisting of 15 CCC projects, 11 CSU projects, 5 UC projects, and 4 intersegmental projects). By subsidizing project costs, the program intends to increase the supply of student housing while also lowering housing charges for some students. Across the segments, the state share of project costs totals $2.2 billion. Most of the projects are to be debt financed (using university bonds or state lease revenue bonds), with the state paying the associated debt service. The 2023-24 Budget Act provides $164 million ongoing General Fund for those debt service costs. (Continued on page 7) 6 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT UC Uses Campus Staff and Facilities receiving food assistance. In addition, UC reports to Provide Significant Amount of Housing its rapid rehousing program served 4,706 UC Assistance. Relative to the other segments, UC students, though it indicates there is likely is more likely to provide housing assistance using duplication between this count and the count of on-campus resources. For example, nearly all students served through the basic needs program. UC campuses employ their own case managers The number of UC students receiving housing who support housing insecure students and use assistance has increased since 2019-20, when their own residence halls for emergency housing. an estimated 2,150 students received housing Beyond these efforts, UC campuses also work assistance through either program. to varying extents with community partners, Campuses Have Discretion in Prioritizing including nonprofit organizations that provide Among Students. UC does not have a systemwide housing services to the general population. approach for prioritizing among students seeking The types of housing assistance that community housing assistance. Instead, campuses have partners provide (including emergency housing, discretion in how they prioritize among students rental subsidies, case management, and tenant and the amount and duration of assistance they education) appear generally similar to those provide. Program administrators at some campuses commonly provided by UC campuses. indicate they have more student demand for Small but Growing Number of UC Students housing assistance than they can accommodate, Are Receiving Housing Assistance. Students citing funding, staffing, and housing availability interested in receiving housing assistance tend as constraints. Some of these campuses indicate to learn about the rapid rehousing and basic they are maintaining program waitlists or using needs programs through word-of-mouth and triage systems to differentiate among various levels campus outreach efforts. These campus outreach of student need. Anecdotally, some campuses efforts include promoting the programs at new have shared that they ask interested students to student orientations, at campus events, on social complete an intake form, which can help in tailoring media, through faculty and staff, and through services to them. peers. In 2022-23, UC reports 6,604 students Demographics of Emergency Grant received housing assistance through its basic Recipients Differ From Broader Student Body. needs program. This represents a small subset of Though UC is not required to report annually on the 78,070 UC students who received any basic the demographics of students receiving housing needs service, with most of those students likely Other Programs Also Help Students With Housing Several Financial Aid Programs Help Students With Nontuition Costs. Though the state recently has created several new programs to address student housing insecurity, the state also has longer-standing programs intended to help students cover their costs while in college. The state’s longest-standing and largest financial aid program—the Cal Grant program—is serving an estimated 404,000 students in 2023-24, of whom 279,000 are receiving nontuition awards generally worth up to $1,648 annually. In addition, the state’s recently expanded Middle Class Scholarship program is providing awards that average about $2,800 annually to an estimated 308,000 students combined at UC and CSU, with many students using their awards for nontuition costs. The state is also providing nontuition awards of up to $8,000 annually to more than 80,000 full-time CCC students through the Student Success Completion Grant program. In addition to these state programs, many students receive nontuition assistance through federal programs, including Pell Grants and student loans. Some students, particularly at UC, also receive nontuition assistance through institutional grants. Due to the limited availability of basic needs funding, some campuses encourage or require students to maximize aid from these financial aid programs prior to receiving emergency grants through basic needs programs. www.lao.ca.gov 7 AN LAO REPORT assistance, it did report these data for 2021-22 permanent housing. UC does not have a consistent in response to a one-time statutory requirement. definition of gaining permanent housing. Instead, The data reported is specific to students receiving it indicates that campuses may include students emergency grants, excluding students receiving in this measure if they signed a lease, maintained other forms of housing assistance. Of the housing for at least 30 days, or maintained housing 3,605 students who received emergency grants in through the end of the term. It is unclear whether 2021-22, 2,906 (81 percent) were undergraduates students who received assistance to remain in their and the remaining were graduate students. current housing (rather than to obtain new housing) As Figure 3 shows, about two-thirds of are included in this measure. Moreover, the housing undergraduate emergency grants recipients outcomes data could be incomplete because not either had a family income of less than $35,000 or all students confirm their housing outcomes after were financially independent. Figure 4 compares receiving assistance. selected demographic characteristics of the CSU undergraduates who received emergency grants in 2021-22 with those of UC’s broader undergraduate Background on CSU System. The CSU system student body. Compared to the broader student has 23 campuses, consisting of 22 campuses body, emergency grant recipients were more likely offering a broad array of academic programs to be Latino or Black, first-generation, female, and for undergraduate and graduate students, LGBTQ. These student groups align with those plus one campus that offers a specialized set reporting higher rates of homelessness in UC of maritime-related programs. CSU currently surveys, except that female students report similar enrolls a total headcount of approximately rates of homelessness as male students. 455,000 students. Of the CSU campuses, 7 enroll fewer than 10,000 students, 5 enroll between Data on Students’ Academic and Housing 10,000 and 20,000 students, and 11 enroll more Outcomes Are Incomplete. UC’s most than 20,000 students. Although variation exists recent annual program report includes some outcomes data for the 6,604 students who received housing Figure 3 assistance through the basic needs program in 2022-23. (UC Most UC Emergency Grant Recipients indicates campuses are not Are Low Income or Independent tracking outcomes separately for Undergraduate Emergency Grant Recipients by Family Income Range, students who receive housing 2021-22 assistance through the rapid rehousing program.) These 1,200 outcomes data are reported by campus basic needs staff. Of the Independenta 1,000 6,604 students, UC estimates Dependent at least 1,700 (26 percent) 800 remained enrolled after receiving assistance and at least 400 600 (6 percent) graduated. UC notes that the academic outcomes 400 data available to basic needs staff varies by campus, which 200 suggests these figures might be inconsistently reported and All income Less than $35,000- $71,000- $106,000- $141,000- $177,000- Over incomplete. Regarding housing levels $35,000 $71,000 $106,000 $141,000 $177,000 $212,000 $212,000 outcomes, UC estimates at least 1,700 students (26 percent) gained a Students are considered independent if they are at least 24-years old or meet certain other criteria, such as being married, having dependents, or being current or former foster youth. 8 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT At CSU, Rapid Rehousing Figure 4 and Basic Needs Programs Are Distinct. While the rapid rehousing Demographics of UC Emergency Grant Recipients and basic needs programs Differ From Broader Student Body have significant overlap at UC, Selected Undergraduate Student Characteristics, 2021-22 they are more distinct at CSU. CSU received ongoing funding Race/Ethnicity for the rapid rehousing program Emergency first in 2019-20. Rather than Grant Recipients spreading the initial $6.5 million All Undergraduates in rapid rehousing funds across all 23 campuses, CSU chose to 10 20 30 40 50 60 70 80 90 100% allocate it to a subset of campuses Latino Asian/Pacific Islander White Black American Indian Othera that would work with community partners to provide certain types First-Generation Status of housing assistance. Then, when Emergency CSU began receiving $15 million Grant Recipients in ongoing basic needs funds in All Undergraduates 2021-22, it allocated those funds 10 20 30 40 50 60 70 80 90 100% across all campuses to support broader types of assistance First Generation Not First Generation (described in more detail later in this section). Nonetheless, Genderb the implementation of the two Emergency programs is coordinated. At Grant Recipients campuses participating in both All Undergraduates programs, the programs are 10 20 30 40 50 60 70 80 90 100% typically administered by the Female Male Non-Binary same office. When students go to the basic needs center seeking housing assistance, staff determine Sexual Orientationc whether to direct them toward the Emergency Grant Recipients rapid rehousing program versus All Undergraduates other types of housing assistance supported by basic needs funds. 10 20 30 40 50 60 70 80 90 100% CSU Awarded Rapid Heterosexual Gay, Lesbian, or Bisexual Rehousing Funds Competitively to Certain Campuses. Of a Consists of international students and students whose race/ethnicity is unknown. b Excludes students whose gender identity is unknown. CSU’s 23 campuses, 14 applied c Excludes students whose sexual orientation is unknown. for rapid rehousing funds. The Chancellor’s Office evaluated these among CSU campuses, many CSU campuses have applications based on student a majority of their students commuting to campus. need at the campus, the availability of community In fall 2022, the number of on-campus beds at CSU partners, implementation readiness, the planned equated to 13 percent of all students systemwide, use of funds, and the method of evaluating the with the share ranging from 4 percent at the Fresno program’s impact. Based on these criteria, CSU campus to 49 percent at the Sonoma campus. initially selected seven campuses (Chico, Long The Maritime campus, which is designed to be Beach, Pomona, Sacramento, San Diego, San residential, had enough beds for all of its students. Francisco, and San Jose) to receive funding. These www.lao.ca.gov 9 AN LAO REPORT campuses began implementing the rapid rehousing and administration while spending two-thirds program in 2020-21. CSU then selected an eighth on direct assistance, also with notable variation campus (Northridge) to receive funding beginning among organizations. In the first two years of the in 2021-22. All eight campuses are receiving program, CSU reports that participating campuses annual awards ($870,000 per campus, in most added a total of 15 new staff positions, while their cases) for a grant period lasting through 2023-24. community partners added a total of 18 new staff CSU indicates it is currently developing a request positions. CSU indicates significant staffing is for proposals for a new four-year grant period required to provide case management services beginning in 2024-25. to students. At CSU, Rapid Rehousing Funds Support CSU Rapid Rehousing Program Serves Small a Specific Model of Housing Assistance. This Number of High-Need Students. CSU’s rapid model is based on the traditional rapid rehousing rehousing program is targeted toward students model for moving people who are homeless into who are homeless or otherwise facing long-term permanent housing. Every participating CSU housing challenges. Campuses direct only a small campus is working with one to two community share of students seeking housing assistance partners to implement this model. For example, to community partners for enrollment in the the Long Beach, Northridge, and Pomona rapid rehousing program. Most students instead campuses are all working with Jovenes, Inc., an receive other forms of housing assistance from the organization that provides support services to campus, such as temporary emergency housing youth experiencing homelessness in Los Angeles or one-time emergency grants through the basic County. Meanwhile, the Chico campus is working needs program. Across the first two years of the with two organizations, True North Housing Alliance rapid rehousing program’s implementation (2020-21 and the Chico Housing Action Team, both of which and 2021-22), CSU reports 2,725 students engaged provide support services to people experiencing with program staff on campus. Of these students, homelessness in Butte County. Typically, students 342 were referred to a community partner and seeking housing assistance first interact with eventually enrolled in the rapid rehousing program, campus staff. Campus staff determine whether while the remaining students received other forms to refer students to a community partner for of assistance. enrollment in rapid rehousing. For students who CSU Tracks Housing and Academic are referred, the community partner provides Outcomes of Rapid Rehousing Participants. housing identification, rental subsidies, and Of the 342 students who enrolled in the rapid case management. rehousing program across the first two years of Rapid Rehousing Funds Are Used by implementation, CSU reports that 173 students Campuses and Community Partners. Of each (51 percent) moved into permanent housing. CSU campus’s annual funding allocation, 25 percent indicates it considers students to have moved into is retained by the campus and 75 percent goes permanent housing once they are paying for their to its community partner. At both campuses and own housing independently from the program. community partners, the rapid rehousing funds (This differs from the definitions used by UC.) support program staffing and administration as Of the 342 students, CSU reports 162 students well as direct student assistance (including rental (47 percent) remained enrolled in school at the end subsidies). Based on a data request to CSU, of the second year, and 97 students (28 percent) campuses on average spent about two-thirds had graduated. The remaining 83 students of their 2022-23 allocations on program staffing (24 percent) were no longer participating in the and administration while spending one-third on rapid rehousing program, and it is not known direct assistance, though this varied notably whether they remained enrolled in school or had among campuses. In contrast, community dropped out. partners on average spent about one-third of their 2022-23 funding allocation on program staffing 10 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT CSU Allocates Basic Needs Funds to All that program, CSU’s basic needs reports do not Campuses. In 2021-22 (two years after the state contain comparable data. Program administrators began providing rapid rehousing funds), the state indicate efforts are underway to develop a standard also began providing ongoing basic needs funds approach across campuses for better tracking to CSU. While only 8 CSU campuses are receiving student participation in basic needs services and funding for rapid rehousing, all 23 campuses are evaluating the impact of those services on student receiving funding for basic needs. CSU allocated outcomes. While these evaluation efforts remain the initial $15 million ongoing for basic needs to in early stages, CSU notes that nearly 90 percent all campuses based on the number of Pell Grant of the 20,000 students who accessed basic needs recipients at each campus. Then, after receiving a services (including, but not limited to, housing $10 million ongoing augmentation for basic needs assistance) in fall 2022 remained enrolled the in 2022-23, CSU allocated the additional funds to subsequent term. all campuses based on the number of students CCC with zero expected family contribution—a federal measure that identifies students with the greatest Background on CCC System. The CCC system financial need. Under this approach, basic needs consists of 116 community colleges. Of these allocations ranged from about $26,000 at the colleges, 115 offer a broad array of lower division Maritime campus to $2.9 million at the Long Beach academic programs and career technical education campus in 2022-23 (the most recent year reported). programs. Each of these colleges is locally governed by one of 72 community college districts. CSU Basic Needs Funds Support Various The one remaining college is a fully online statewide Types of Housing Assistance. CSU reports all college governed at the state level. CCC currently campuses are offering some form of housing enrolls a total annual headcount of approximately assistance through the basic needs program. 1.9 million students. Of the colleges, 27 enroll Nearly all campuses offer on-campus emergency fewer than 10,000 students, 47 enroll between housing for temporary stays, typically between 10,000 and 20,000 students, and 42 enroll more two weeks to one semester. Most campuses also than 20,000 students. Nearly all community college offer off-campus emergency housing, including students are commuters. Only 13 community for students with children or other circumstances colleges currently offer on-campus housing, with not well-suited to residence halls. Campuses also most of these located in rural areas that are more commonly provide emergency grants for housing. difficult to access (due to geography and weather) In addition, some campuses are using basic needs than other campuses. These 13 colleges combined funds for long-term housing assistance (such as have about 2,700 beds. ongoing rental subsidies), though this is somewhat less common than emergency assistance. Rapid Rehousing and Basic Needs Programs Are Also Distinct at CCC. CCC’s approach to Housing Assistance Accounts for Small Share administering the rapid rehousing and basic needs of CSU Basic Needs Services. CSU reports about programs is generally similar to CSU’s approach. 14,000 students received some form of housing Like CSU, CCC has allocated rapid rehousing assistance through the basic needs program in funds to a subset of colleges to provide targeted 2022-23. This number is relatively small compared housing assistance, while allocating basic needs to the number of students accessing food pantries funds across all colleges to provide a broader (67,500) or receiving CalFresh application support range of assistance. CCC is also similarly working (22,835) through the basic needs program that with community partners to implement the rapid year. To date, CSU has not reported on the rehousing program. demographics of students accessing housing assistance or other basic needs services. CCC Awarded Rapid Rehousing Funds Competitively to Certain Colleges. Of the Efforts Are Under Way to Collect Outcomes 116 community colleges, 64 applied to participate Data on CSU Basic Needs Recipients. Whereas in the rapid rehousing program after it was initially CSU’s rapid rehousing reports include academic created. The CCC Chancellor’s Office evaluated and housing outcomes of students participating in www.lao.ca.gov 11 AN LAO REPORT the applications based on several metrics related subsidies, and case management. In addition, to county-level need (such as the percentage of colleges are using rapid rehousing funds to provide the county population living below the poverty line) other forms of housing assistance, including and institutional need (such as the percentage temporary emergency housing. Assistance of students who are Pell Grant recipients, foster through CCC’s rapid rehousing program is youth, veterans, or students with disabilities). available to students who are either homeless As Figure 5 shows, CCC selected an initial cohort or housing insecure and at imminent risk of of 14 colleges, with their award amounts based becoming homeless. entirely on college size. After the state significantly CCC Is Tracking Some Outcomes for increased funding for the rapid rehousing Rapid Rehousing Recipients. CCC reports its program in 2022-23, CCC used similar metrics to implementation of the rapid rehousing program select 14 additional colleges and invited them to was delayed after the onset of the pandemic. participate in a second cohort. Of the 14 colleges Given these delays, the first year for which invited, 11 chose to participate. Each college in the CCC reported program data was 2021-22. In that second cohort received a base amount of funding year, CCC reports the 14 colleges in the first cohort ($150,000), with the remaining funds allocated based on student headcount. Participating Colleges Are Working With Figure 5 Community Partners on Rapid Rehousing. 25 Community Colleges Currently Are Each college participating in the CCC rapid Receiving Rapid Rehousing Funds rehousing program has developed or is developing 2023-24 Allocations (In Thousands) a memorandum of understanding with at least one community partner. In these partnerships, Campus Allocation the college tends to focus on student intake and Cohort 1 academic support while relying on community Antelope Valley College $700 partners to provide housing assistance. Program Butte College 700 administrators suggest this approach allows Cerritos College 700 Long Beach City College 700 each agency to focus on the areas in which they Los Angeles Southwest College 700 have greatest expertise. Specific partnership Riverside City College 700 arrangements vary among participating colleges. Fresno City College 700 For example, Cerritos College directs a majority of Victor Valley College 700 Modesto Junior College 700 its annual rapid rehousing funds to its community Imperial Valley College 600 partner, Jovenes, Inc. In turn, Jovenes, Inc. uses San Diego City College 600 a small portion of funds for staffing, then uses Barstow College 500 the remainder for direct assistance (including Gavilan College 500 College of the Redwoods 500 ongoing rental subsidies, move-in assistance, and Subtotal ($9,000) short-term grants to prevent homelessness). Some Cohort 2 other colleges have partnerships that are narrower American River College $1,864 in scope, such as providing funding to a community Santa Rosa Junior College 1,361 partner to support one staff position that helps Southwestern College 1,099 Santa Barbara City College 1,085 students find housing and provides tenant Los Angeles Trade-Tech College 904 education workshops. San Bernardino Valley College 797 Colleges Are Using Rapid Rehousing Funds Los Angeles Harbor College 641 Shasta College 625 for Various Types of Housing Assistance. Oxnard College 587 The CCC Chancellor’s Office reports colleges and College of Marin 474 their community partners are implementing the West Hills Lemoore College 393 key components of the traditional rapid rehousing Subtotal ($9,830) model, consisting of housing identification, rental Total $18,830 12 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT provided housing assistance to 519 students, Housing Assistance Accounts for Small consisting of 224 students who were homeless Share of CCC Basic Needs Services. To date, and 295 students who were housing insecure. CCC has reported program participation data Of the 519 total students, CCC reports that from basic needs centers at 60 colleges. Students 116 students (22 percent) subsequently maintained at these colleges accessed housing assistance stable housing for at least six months. It is unclear 4,156 times during summer and fall 2022, with whether the remaining students were unable to housing assistance representing about 6 percent maintain stable housing or whether program staff of the 64,777 contacts for basic needs services lacked data on their housing outcomes. CCC has during that time. (As at the other segments, food not reported academic outcomes for students assistance was by far the most common category receiving assistance through the rapid rehousing of basic needs service provided at colleges.) program. CCC indicates it is beginning to collect The specific types of housing assistance program data centrally using its student information provided vary by college. Examples include system, which will allow for improved reporting in emergency grants for housing costs and referrals future years. to housing resources in the community. Based Since 2021-22, All Colleges Have Received on conversations with program administrators, Funding for Basic Needs Centers. In 2021-22, the housing assistance provided by colleges the state enacted a requirement for every college using basic needs funds is typically short term, in to designate a basic needs coordinator and contrast to the ongoing rental subsidies that may be establish a basic needs center that serves as a provided using rapid rehousing funds. central location on campus for students to access CCC Is Beginning to Collect Data on Students related resources. (The requirement applies to Receiving Basic Needs Services. As with the CCC only, but all UC campuses and most CSU rapid rehousing program, CCC is beginning to track campuses also have basic needs centers.) The participation in the basic needs program through state provides ongoing funding to CCC to support its student information system. This allows it to this requirement. CCC allocates these basic needs link program participation to student demographic funds by formula to all 115 colleges with a physical data and academic outcomes. Based on data campus. Under the formula, CCC first provides from the 60 colleges that participated in the first each college with a base amount of funding round of reporting, students receiving any basic ($130,000), then allocates half of the remaining needs service in summer and fall 2022 generally funds based on the total number of students resembled the broader student population in enrolled and the other half based on the number of terms of race/ethnicity, gender, and age group. Pell Grant recipients. Under this approach, college (Demographic data were not reported for students allocations in 2023-24 ranged from $157,255 receiving housing assistance specifically.) at Feather River College to $978,124 at Mount Regarding academic outcomes, CCC reports San Antonio College. students receiving any basic needs service had Basic Needs Funding Supports Staffing, an average course success rate in fall 2022 of Operations, and Direct Assistance. Similar to 66 percent, compared to 71 percent for the broader UC, the largest expense category for basic needs student body. Because CCC began to track basic funding at CCC is staffing. In 2021-22, colleges needs participation in 2022-23, persistence and reported spending 56 percent of basic needs graduation data were not yet available at the time funding on salaries and benefits. Colleges also the first report was due in May 2023. The report spent a combined 32 percent of basic needs also does not cover housing outcomes for funding on supplies and materials (including food participating students. pantry supplies), other operating expenses, and capital outlay. A small share of basic needs funds (about 12 percent) went toward direct student assistance, such as emergency grants, grocery store gift cards, and transit vouchers. www.lao.ca.gov 13 AN LAO REPORT IMPROVING REPORTING REQUIREMENTS Reports Provide Some Helpful Program including temporary on-campus emergency Information. The rapid rehousing and basic housing or emergency grants. Other students needs reports the segments have submitted to the are referred by on-campus staff to off-campus Legislature to date include some key information. community partners that help with finding and The reports generally identify how the segments covering the cost of housing. are allocating funds among campuses and describe State Has Incomplete Data for Evaluating how campuses are using program funds, including Program Effectiveness. Although the required the types of services provided and, in some cases, reports provide some information on the services the associated expenditures. The available data provided through the rapid rehousing and basic indicate the segments are using a notable share needs programs, less data have been provided of program funds to support staffing and other to date on program outcomes. While this is partly operational costs, in addition to direct student because these programs are relatively new and assistance. The reports also provide some data on the segments are still working to improve data the number of students served. These data indicate collection, it is also because of gaps in statutory that each segment is serving a small number of reporting requirements. As Figure 6 shows, housing insecure students. Some of these students current reporting requirements are inconsistent are served entirely by on-campus services, among segments and programs, leaving key Figure 6 Current Reporting Requirements Vary by Program and Segment Data Required to Be Submitted in Annual Program Reports Rapid Rehousing Basic Needsa All Segments UC and CSU CCC Campus funding Distribution of funds by campus. Distribution of funds by campus. — allocations Use of funds Description of the types of Description of the types of services Description of the types of services funded. funded. services funded. Number of coordinators hired. List of campuses offering emergency housing or long-term housing assistance. Programmatic budget by campus. Participation Number of students served by — Number of students served. campus. Demographics of — — Socioeconomic and participants demographic backgrounds of students served.b Housing outcomes Relevant outcomes, such as the An analysis describing how funds — number of students that were reduced homelessness among able to secure permanent students.c housing.c Academic outcomes Relevant outcomes, such as If feasible, an analysis describing Whether students remained whether students remained how funds impacted student enrolled or graduated. enrolled or graduated.c outcomes such as persistence or completion.c a In addition to these measures, the segments are required to report certain information specific to food assistance and student mental health services, how they leveraged or coordinated with other state or local resources (UC and CSU only), and other findings and best practices. b CCC has discretion to determine what specific student characteristics it reports. c The segments have discretion to determine the specific outcomes they report. 14 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT information missing. For example, CCC is the only could require each segment to report on a segment required to report annually on the number consistent and clearly defined set of certain housing and demographics of students receiving basic and academic outcomes for participating students, needs services. Furthermore, the requirements for disaggregated by campus. This would allow the the segments to track participants’ housing and Legislature to better understand the extent to which academic outcomes are vague. In most cases, program objectives were being met. Improved statutory language suggests possible outcome outcomes data also would help the Legislature measures (“such as persistence or completion” or compare the cost-effectiveness of these programs “such as the number of students that were able by campus and potentially identify campuses with to secure permanent housing”) without requiring promising approaches that could be replicated. the segments to use any of them specifically. Though we recommend the Legislature statutorily The suggested measures also are not clearly require the segments to provide data in all of the defined, leading to inconsistencies in how these key areas of funding, participation, and outcomes, measures are interpreted across and even within it may want to add or refine outcome measures segments. For example, in collecting data on as it learns more about housing programs across housing outcomes, campuses have interpreted the state. “securing permanent housing” to mean anything from signing a lease Figure 7 to maintaining housing for at least Illustrative Reporting Requirements on six months. Housing Assistance Recommend Refining Statutory Reporting Rapid Rehousing and Basic Needs Programs at UC, CSU, and CCC Requirements for Both Topic Required Dataa Programs. Given the above gaps and inconsistencies, we Campus funding • Distribution of funds by campus. allocations recommend refining the statutory Use of funds • Description of the types of services funded. reporting requirements. Figure 7 • Expenditures by category (including staffing, direct on the next page shows an assistance, and other operating expenses). illustrative set of data that the state Participation • Number of students receiving housing assistance, could require of all three segments disaggregated by students who are homeless and those for both the rapid rehousing who are housing insecure (but not homeless).b and basic needs programs. The Demographics of • Demographics of students receiving housing participants assistance, disaggregated by student level Legislature could continue to (undergraduate or graduate), race/ethnicity, income level require the segments to report (or Pell eligibility), gender, and age group. on campus funding allocations Housing outcomes • Average time to place homeless students in housing. and the use of program funds. It • Share of homeless students who find and maintain stable housing through the end of the academic term. could also require the segments to • Share of housing insecure (but not homeless) students report participation data for each who are able to remain in stable housing through the of their campuses. In addition, end of the academic term. the Legislature could require each Academic outcomes • Share of students receiving housing assistance who segment to report systemwide remain enrolled in the following academic year. • Share of students receiving housing assistance who data on the demographics of graduate by the end of the academic year. students receiving housing a Segments would be required to report participation and outcomes data by campus. assistance, allowing it to monitor b Students would be considered homeless if they lack a stable place to live at night, including if they are couch surfing or staying at hotels or motels, in emergency shelters or transitional housing, and whether programs are reaching the in places not meant for habitation (such as cars or tents). Students would be considered housing students most likely to be facing insecure (but not homeless) if they are experiencing other housing challenges, such as difficulty paying rent or utilities, overcrowding, and needing to move frequently. housing challenges. Furthermore, it www.lao.ca.gov 15 AN LAO REPORT Recommend Aligning Report Due Dates Figure 8 Across Programs. Currently, the due dates of the annual reports on rapid rehousing and basic Existing Due Dates Vary by needs vary across segments and programs, as Program and Segment Figure 8 shows. In some cases, these due dates Statutory Due Dates for Annual Reports hinder program oversight. At CSU and CCC, the rapid rehousing and basic needs reports have Rapid Rehousing Basic Needs different due dates, leading these segments to UC February 1 February 1 report separately on the two programs despite CSU Unspecified March 1 CCC July 15 May 1 their overlapping goals and activities. In addition, the CCC rapid rehousing and basic needs reports are likely due too late in the state budget process to inform the Legislature’s decisions, while the CSU rapid rehousing report has no due date at all. We recommend requiring each segment to submit one consolidated report covering the two related programs by the spring following the close of each fiscal year. Setting a due date of no later than April 1 annually for each segment’s report would likely allow sufficient time for these reports to inform state budget decisions for the upcoming year. LAO PUBLICATIONS This report was prepared by Lisa Qing, with research assistance from Zoe Klingmann. It was reviewed by Jennifer Pacella and Ross Brown. The Legislative Analyst’s Office (LAO) is a nonpartisan office that provides fiscal and policy information and advice to the Legislature. To request publications call (916) 445-4656. This report and others, as well as an e-mail subscription service, are available on the LAO’s website at www.lao.ca.gov. The LAO is located at 925 L Street, Suite 1000, Sacramento, California 95814. 16 LEGISLATIVE ANALYST’S OFFICE