Turn%up%The%heaT:

its%time%to%Raise%New%YoRks%shelteR%aNd%Fuel%allowaNces
By%mr%mz,%e.%

We are deeply grateful to the Robert Sterling Clark Foundaon for the nancial support
that made this report possible. The views presented here are those of the authors and not
necessarily those of the Robert Sterling Clark Foundaon or its directors, ocers, or sta.

eMpIre%JuSTICe%CenTer%BOard%Of%dIreCTOrS
C R (C)
The Roe Group

JA S (V C)

M T. H (T)
Treve Cristo Salzer & Andolina

C L (S)
Univ. of Rochester Medical Center
Center&for&Community&Health

R B
Government Law CenterAlbany Law School

L E
The Law Oces of Anthony A. Capetola

H. J LF
Hogan&Willig

L L
Syracuse University College of Law

E F. P II
Harter Secrest & Emery LLP

J R
Mengel, Metzger, Barr & Co. LLP

L T
Family Planning Advocates

S V
City of Rochester

M S. W
Treve Cristo Salzer & Andolina
%%%%%%%%

%%%%%%%%All directors serve as volunteers.

%%%%%%%%eMpIre%JuSTICe%CenTer%LeaderShIp
B H, C C
%%%%%%%%A E, P & CEO
K B L, V P

K H, V P

aBOuT%eMpIre%JuSTICe%CenTer
E J C , A, R, W
P, Y C I (L I). E J
- . W , E J
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taBle%oF%coNteNts
I%

homelessNess%iN%New%YoRk%
%%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

%
%

%
4

II%

New%YoRks%coNstitutioNal%aNd%statutoRY%maNdates%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

%
%

%
5

III%

coNNectiNg%shelteR%allowaNces%to%homelessNess%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

%
%

%%%%%%%
6

IV%

histoRY%oF%the%shelteR%allowaNce%
%%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

%%
%

%
7

V%

KEEPINg FAMILIES IN THEIR HOMES IS MORE COSTEFFECTIVE THAN

dealiNg%with%homelessNess%
%%
%
%% .%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.% % %
%
9

%VI% the%Fuel%allowaNce%
%%
%% .%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.%%%.% % %

%
%

%
12

VII%%%%%what%aBout%heaP?%
%%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

%
%

%
14

VIII% the%haRsh%coNsequeNces%oF%accePtiNg%emeRgeNcY%assistaNce% %
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %
%
14
iX%%%%%%the%BiggeR%PictuRe:%the%eXPeNse%oF%eNeRgY%
%%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

%
%

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15

X%

what%caN%New%YoRk%do?%
%%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

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17

%XI%% eNdNotes%
%%
%%.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% %.% % %

%
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18

%%%%%%%%%%%%%%%%%%%

I.%%hOMeLeSSneSS%In%new%YOrK
I A, N Y, 2012, R A,
10 15, $75 .1%
H S I, A
D S S . E ,
z A, z
. A A A T U:
T , A ,
. T . T .
T I .2
T q Where do I live
N Y , N Y j.
F 2009 2014,
z N Y
S E D
.3%%T E
D z
,
,
, ,
. F 2009
2014, N Y 30,000
,
86,715 2009-2010 ,
116,874 2013-2014 .4
O z
. T N A E
H,
,
, ,
. A ,
N Y ( ),
11.30%, 69,000 77,000,5 N Y
39.4 10,000 z,
19.3 10,000. A j. T U.S.
D H U D 2013 2014,
N Y x .6%%%
A , 2015,
z N Y C.7

Empir E Ju st icE cEn t Er

%%4

Ics%i%n%Yok%Stt%Stt%homlssss%2009M20148
Scool%Y
2009-2010
2010-2011
2011-2012
2012-2013
2013-2014

rst%o%Stt
19,784
21,262
26,889
29,342
29,637

n%Yok%City
66,931
69,244
71,285
80,574
87,210

Totl
86,715
90,506
98,174
109,916
116,847

II.%%new%YOrKS%COnSTITuTIOnaL%and%STaTuTOrY%
MandaTeS
T N Y S C S S L

. N Y S C, XVII,
, ...
... ,
.9 T
j , C q,
, 131 S S L, q:
%
I ,
, q
....10
W , q ,
x x . S 350 (1)
() S S L q [] q
, ,
, -
.11
T , N Y
,
x - , . T

%. T q, N Y S
,
, - N Y S,
? A , - N Y
z, q

.

%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%

t u r n u p t h e h eat

New York
families that
are on public
assistance and
pay for housing
receive a
shelter
allowance,
which is
money
earmarked
speci cally for
the payment
of housing
expenses - and
yet, the number
of homeless
people keeps
increasing.
This is because
the amount of
money allowed
for public
assistance
recipients to
pay their rent
is simply not
su cient.

III.%%COnneCTIng%SheLTer%aLLOwanCeS%TO%
hOMeLeSSneSS
I N Y ,
N Y . C

S S D, .
A H R A C S B
N Y T O (2015), []
.12 B
N Y: . O ,
q :
I ,

. ... T
2003, . T , ,
A j. B
....13
T , O
T D A,14 x , ,
x . HRA
C B
q. T
j .
T x F
M R S (FMR). T F M R S
U.S. D H U
D,15
. T F M R
: The FMR is the 40th percenle of gross rents for typical, non-substandard rental
units occupied by recent movers in a local housing market.16& T 40
FMR ,
- , x,
.
A x, FMR 2003
. W 2003
C D, 60%
x, 40% ( ). A ,
- . A

Empir E Ju st icE cEn t Er

%%6

 FMR A C17 A
S S D18 FMR
.

alby%Coty:%fmily%o%T%Slt%alloc%s%Com%%
to%O%Boom%hud%fi%Mkt%rt
YEAR

1 Bed FMR

Albany Shelter
Allowance

2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015

$515
$516
$559
$586
$616
$697
$711
$716
$737
$713
$744
$750
$782

$309
$309
$309
$309
$309
$309
$309
$309
$309
$309
$309
$309
$309

Percent of FMR
covered by the
Allowance
60%
59.88%
55.28%
52.73%
50.16%
44.33%
43.46%
43.16%
41.93%
43.34%
41.53%
41.2%
39.51%

IV.%%hISTOrY%Of%The%SheLTer%aLLOwanCe%
T N Y S 1975
z
,
.19 B ,
95% ,
U.S. D H U D (HUD) FMR .20 S
,
x j
FMR.21 T j 1988,
FMR, ,
S D S S
70 ,22 95 . E
70
x , D B

%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%

t u r n u p t h e h eat

 65
4 x .23%
E, 1990, 50%
.24%
I 1990, 25 , Jigges . Grinker
q N Y C . T Jigges
,
q , ,
.25%
T Jigges ,

q,
.26%%
T q,
S C
S S

.27 N

, :
A [ ]



.28
A 1990,
. T , 2003.29
T Jigges
( ),

. A , N Y
, , q.30%%t%1988%
A $245 (
).31 T 2003 A C $309,32%
, 28 , A C
, , 64 .
F ,
( ) 1988.33 A N Y OTDA x
A D 2010:

Empir E Ju st icE cEn t Er

%%8

When
prolonged
periods of
homelessness
incur the
highest expense,
and when the
cost of
I
homelessness
, A, ,
rounely
$245 , j .
outstrips the
cost of FMR,
New
York should
V.%%KeepIng%faMILIeS%In%TheIr%hOMeS%IS%MOre%
Co st -ef f eCt iv e t h an Deal in g w it h h o mel essn ess act immediately
in its own scal
A x , ,
interest to
FMR,
facilitate a
, N Y means for public
. F
assistance to
, ,
pay their rent
x
rather than
, x .
enter the costly
W - , U.S. D H
bureaucracy of
U D x
homelessness.
: I
H N Y 20 .
B ,

. T
, /,
. T

.34%

,
x F M R
.%35%%%
A, , x :
I
x ,
.36%%
Ex ;
35
22 .37
W x,
FMR, N Y

%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%

t u r n u p t h e h eat


.%
T x
O T D A
q . W
2003,
FMR
.38 I 2003
A D ,
OTDA []
...
, ,
x ,
,


.39
T


. T
O T D
A S S
D , ,


x x
.40 T S S
D OTDA, OTDA
.41 A , , N Y C,
W, N, S, O .42
I 2008 OTDA , O C

. O C
% 2008 q
$157 ($4,710 ) /
L E H S.43 K
, ,
x: C z 3, S S
$942 . O F
S S q $3,768 , .44 I ,

Empir E Ju st icE cEn t Er

%%10

 x . Orange County
I , ,
calculated
-. T -
that the
- :
average cost
R -
-
. H ,
,
,
. T ,
. H x

. 45%%
S
.46 F x,
;
q .47%%
T , MK-V A q

.48 T x ,49%

, :
.50
T N Y S

q . N Y
S S D ,
x x . I
, N Y q ,
x N Y,
.
F N Y C,
,
-
N Y
- . I
N Y
.

%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%

11

of providing
services to
a homeless
family in
2008 equaled
$157 per day
($4,710 per
month) when
we consider
placements in
hotel/ motels
and
placements
at our Local
Emergency
Housing
Shelter.

t u r n u p t h e h eat

VI.%%The%fueL%aLLOwanCe
O x,
N Y C, .
T O T D A R R
, z ,
q.51 T , ,
1987.52 I , ,
, ,
x 1990. T
. A q,
.%

T%pic%o%ntl%gs%i%n%Yok%nly%dobl%
Bt%1987%%201453
N Y 1987
N Y 2014

$6.88 ( )
$12.54 ( )

I N Y,
,
. F
,

$69 .54%%
M, U.S. E I
A N
Y
O 2015 $2.713
.55 A q
N Y ,
, 800 ,56%
$2,170. T
$180.83 ,
2 $69
. W
,
N Y

.%

Empir E Ju st icE cEn t Er

%%12

Vibility%i%Oil%Costs%ov%%20%y%pio%1990M201057
Historical: 1990, 2000, 2010
N Y 1990 $1.34/
N Y 2000 $1.61/
N Y 2010 $3.10/

Vibility%i%Oil%Costs%ov%t%pst%fiv%Ys:%2011M201558
N Y 2011
N Y 2012
N Y 2013
N Y 2014
N Y 2015

$3.88/
$4.23/
$4.10/
$3.74/
$2.71/

A q
z . N Y Wz A P
U.S. D E, , ,
.59 B j
N Y S x, ,
x , .60 L z
x --
z.
T J C H S H U R
B D 2013, x
:
T -


. B -
, q
.61
P N Y , ,
, --
.

%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%

13

t u r n u p t h e h eat

VII.%%whaT%aBOuT%heap?
S N Y H E A
P, -, .62 HEAP
,
x. T ( ) HEAP . T HEAP
N 16,%63 N Y
. A ,
, J 4, 2016.64%%t%
HEAP .
T HEAP N Y N Y
C, ,
x. OTDA F 2015 $136,668,669 z HEAP , $108,778,704, 80% HEAP
, N Y C.65 A $34,561,847
, $33,666,050 N Y
C, 97% ,
.66

VIII.%%The%harSh%COnSequenCeS%Of%aCCepTIng%
eMergenCY%aSSISTanCe
E q HEAP, HEAP
x,
S S D. I 2014, S C
.67 T ,

x. I ,
P B, C S C S S,

HEAP , :
[A] F . . . x HEAP
, B . P
.68
T
, x HEAP
. I j ,
, ,

Empir E Ju st icE cEn t Er

%%14

 10% .69 F - ,
D S S
. T ,


. H, x
x ,
. T
D
, ,
q , 10%
. A - (, )
x. F ,
S S D
q .
T N Y
q
, , -. %
W 40%
x, ,
. I x x
, . W
,
S S D, . A ,
.%

IX.%%The%BIgger%pICTure:%The%eXpenSe%Of%energY
I j ,
N Y P S C. I J 2015,
C S R, P M C
Ex P A E A L I U C.70%%
T N Y
:

The allocaon
of HEAP dollars
shows that New
Yorkers outside
of New York
City, who are
less likely to
have heat
included in the
rent, are the
hardest hit by
heang
expenses. OTDA
stascs from
February 2015
show that out
of $136,668,669
nonemergency
dollars
authorized in
HEAP bene ts,
$108,778,704,
or almost 80%
of all HEAP
dollars, are
issued outside
of New York
City.

A A 30, 2015, 1,037,651

60 , $799
; 295,797
- 12 . L
x
-.71

%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%

15

t u r n u p t h e h eat

T
N Y 6%.72 B N Y ,
F P L,
22% 41% .73 T C x
/
(.., ). F, []

. T
.74

Empir E Ju st icE cEn t Er

%%16

X.%%whaT%Can%new%YOrK%dO?
%

%
%

a r
p, n
Y rk
u d cr
r
c
50%
iol%fi%Mkt%rts%cosistt%it%mily%siz%s%%o%ymt%
rd b r

u
d
d
p p
r . t c
dju
b
by
d
ub
y
i%costs%o%osi%omlss%iivils%%milis%s%%slt%o%t%
icy%o%t%slt%lloc.%%

. E , OTDA
.
b.% I S F Y ,
,
j
FMR C S S D
q j .

% a r 28 y r ,
%
%

%
%
%
%
%
%

u
r

c u b cr
d
y r
bt%to%%mot%commst%it%t%mkt%t.%%%
%
.%%g , OTDA q
, x ,
.
Bcs%o%t%loMsti%icy%o%t%blic%ssistc%t%i%
u
d u y c
, u uc
cr
d,
r ru
sol%b%lc%o%t%comt%o%yMlt%ymts%om%ooi%
blic%ssistc%css.%
%
. C
.
%
b. T S
q ; ,
%
c.% A 5% .

%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%

17

t u r n u p t h e h eat

endnOTeS

L S, Number of Homeless Children Explodes in State,%Times Union, J 23, 2014, ://.

.///N-------5570153..
2.% Id.
3.% The New York State Technical and Education Center for Homeless Students, D S H, SIRS D
S H ( 2009 2014), ://./-/..
4.% Id.
5.% T 69,566 77,430. N A E H, T S H A 2014,
%21,%available ://..//-//2014_S_O_H_..
6.% The U.S. Department of Housin and Urban Development, T 2014 A H A R (AHAR)
C, O 2014, available ://.x.///2014-AHAR-P1..
7.% E.g., H L W, New York City Struggles to Keep Up with High Homeless Numbers, A 23, 2015, ://..
/2015/08/23/433290757/----------; H S & g B.
s,%Thousands of New Yorkers Living in Dangerous Cluster Units as Homeless Populaon Tops 59,000,%a Record High,%Daily
News, F 1, 2015, available ://../-/----59---1.2099150; R C, N H N Y H R H . . . A, Huffinton Post, ://.
./2015/02/03/--__6598672..
8.% The New York State Technical and Education Center for Homeless Students, D S H, SIRS D
S H ( 2009 2014), available ://./-/..
9.% N.Y. Const. . XVII, 1. See also id., XVIII (H).
10. N.Y. Soc. Serv. Law 131(1).
11.% N.Y. Soc. Serv. Law 350(1)(), ().
12.% L K, He Fought City Hall Over the Homeless. Now Hes Baling From the Inside,%New York Times, O 9, 2015,
available ://../2015/10/11//----------..
13.% Id.
14.% 18 NYCRR 352.3()(1).
15.% U.S. Department of Housin and Urban Development, F M R (FMR) FY 2015 I L (IL) FY 2015,
available ://..///__/_g..
16.% U.S. Department of Housin and Urban Development, U.S. H M C, S, F M R, ://
..//USHMC/98/-2.#3.
17.% U.S. Department of Housin and Urban Development, ://..///.. T
. O S 8, 2015,
U S D H U D
3-7% N Y C, , . S
35 : ://..///2016/FY2016P_SB.
18.% 18 NYCRR 352.3()(1).
19.% Leal Aid Society, T L A S B N Y S A S C S
S T F H, S 18, 2002 ( E J C).
20. Id.%%8.
21.% Id.
22.% Id.%%7.
23.% Id.%%7.
24.% Id.%%7.
25.% Jigges v. Grinker, 75 N.Y.2 411, 414 (1990).
26.% Id.%%417.
27.% Id.%%415.
28.% Id. %417.
29.% New York State Office of Temporary and Disability Assistance, A D 03 ADM-7, Temporary Assistance:
New Shelter Allowances and Related Changes, A 4, 2003.
30. Leal Aid Society, T L A S B N Y S A S C S
S T F H, S 18, 2002 ( E J C).
31.% Id.
32.% 18 NYCRR 352.3()(1).
33.% New York State Office of Temporary and Disability Assistance, A D 03 ADM-7, Temporary Assistance:
New Shelter Allowances and Related Changes, A 4, 2003 (A B).
34.% New York State Office of Temporary and Disability Assistance, A D 09 ADM-10, Shelter Supplementaon
Plans for Safety Net Assistance Single Adults and Childless Couples, M 28, 2009.
35.% U.S. Department of Housin and Urban Development, O P D R, Costs Associated
with First-Time Homelessness for Families and Individuals P-1, M 2010, available at ://..///
//C_H..
36.% Id.
37.% Id. P-2.
38.% 18 NYCRR 352.3()(3).
39.% New York State Office of Temporary and Disability Assistance, A D 03 ADM-7, Temporary Assistance:
New Shelter Allowances and Related Changes, A 4, 2003.
40. Id.
41.% E.g.,%New York State Office of Temporary and Disability Assistance, A D 09 ADM-10, Shelter&
1.%

Empir E Ju st icE cEn t Er

%%18

endnOTeS

Supplementaon Plans for Safety Net Assistance Single Adults and Childless Couples, M 28, 2009.
42.% A , O C, - J J- .
O C -z . Orane County Department of Social
Services, P R S S, 2008, ://.j.///-/
-/--/2008/---..
43.% Orane County Department of Social Services, P R S S, 2008, ://.
j.///-/-/--/2008/---..
44.% Id.
45.% National Law Center on Homelessness Poverty,%Beds and Buses: How Aordable Housing Can Help Reduce School
Transportaon Costs 4, S 2011.
46.% Id.
47.% Frequent Moves Slows Childrens Learning,%Public News Service NY, O 15, 2015, ://.
./2015-10-15/--/q----/48539-1,
F-K, A. H., & R, C. C. (2015, O 5). D S M P E S C R L
M A? T M R C D. D P. A ,
available at ://x../10.1037/0039795.
48.% National Law Center on Homelessness Poverty,%Beds and Buses: How Aordable Housing Can Help Reduce School
Transportaon Costs 5, S 2011; 42 U.S.C. 11432()(3)(B).
49.% National Law Center on Homelessness Poverty,%Beds and Buses: How Aordable Housing Can Help Reduce School
Transportaon Costs 8, S 2011.
50. Id.
51.% 18 NYCRR 352.5; New York State Office of Temporary and Disability Assistance, T A E M,
available at ://..//-/TAEM..
52.% Id.
53.% U.S. Enery Information Administration, N g .., N Y - ,
, ://..///_____..
54.% 18 NYCRR 352.5 (). M A F H: O, K, P:

C O: A, C, C, g, S, S, S, T, Y
N
1
2
3
4
5
6
7
8+
12 M
$69
$69
$69
$72
$75
$81
$87
$92

U.S. Enery Information Administration , P & O Lq, N Y 1990-2005, available at ://../

///LH.x?=PET&=W_EPD2F_PRS_SNY_DPg&=W; U.S. Enery Information Administration,%
O D, W H O R P, ://..///q.?=PET.W_EPD2F_PRS_NUS_
dPg.w.
56.% E.g., B F (C, H V), ://../-/-/--/.
57.% U.S. Enery Information Administration , P & O Lq, N Y 1990-2005, ://../
///LH.x?=PET&=W_EPD2F_PRS_SNY_DPg&=W.
58.% Id.
59.% New York State Homes and Community Renewal, Wz A P, ://../P/
HIS/.
60. E.g.,%Seneca County Office for the Ain, S C Wz P, ://....//
-/---/z-/.
61.% M C, Reducing Energy Costs in Rental Housing: The Need and the Potenal,%Joint Center for Housin Studies of
Harvard University: Americas Rental Housin, D 2013, available at ://.j..//j..
//___0..
62.% E.g.,%New York Office of Temporary and Disability Assistance, Home Enery Assistance Proram, ://../
//.
63.% See, e.g.,%New York Office of Temporary and Disability Assistance, L C M 15-LCM-17, O
5, 2015.
64.% Id.
65.% New York Office of Temporary and Disability Assistance, T D A S F 2015, T
26,%available at ://..///2015/2015-02-..
66.% Id. T 27.
67.% l%hrr,%Frostbien Summit Man Rescued from Unheated Home,%Watershed Post, F 5, 2014, ://
../2014/-----.
68.% Id.
69.% See generally, New York State Office of Temporary and Disability Assistance, T A E M, available
at ://..//-/TAEM..
70. New York Public Service Commission,%Proceeding on Moon of the Commission to Examine Programs to Address Energy
Aordability for Low Income Ulity Customers, J 1, 2015.
71.% Id.%%4.
72.% Id.%%32.
73.% Id.%%5.
74.% Id.%%31.
55.%

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