

As I mentioned in my post about Mayor Jenny Durkan’s second State of the City speech, the mayor’s statements touting the city’s achievements on homelessness deserve some additional scrutiny and context. In her speech, the mayor claimed that the city had “helped more than 7,400 households move out of homelessness and into permanent housing” in 2018 alone. Separately, the mayor stated that the city had made “historic” investments in new enhanced shelter beds “that are moving more people out of homelessness than basic shelters ever have.”

Let’s look at each of those claims in turn.

The mayor’s claim that the city “helped more than 7,400 households move out of homelessness and into permanent housing” in 2018—an increase from about 5,500 in 2017— is misleading. In fact, it overstates the likely number of actual households (or “families,” as the mayor’s office put it in a social media graphic that accompanied the speech) in two key ways. First, the number is based on data from the Homelessness Management Information System (HMIS), used nationwide to track homeless people’s use of services. HMIS doesn’t track households; it tracks exits from programs. This means that Durkan is conflating the number of exits from programs with the number of families exiting homelessness.

For example: Under HMIS, every exit from a single program (say, food assistance, shelter, hygiene, or case management) counts as a single “exit.” That means a single household using three different services would count as three exits, not one. (“Household” refers to heads of households; according to King County, 77 percent of people who are homeless are in households consisting of one or two adults.) If the average household used just two services over the time they were homeless—and the city is working to get people to access more services, not less, in an effort to help people find housing faster—that would mean that Durkan would be overstating the number of exits from homelessness by 100 percent. This is a hypothetical—the city was unable to provide the actual number of families exited from homelessness—but given that the city has moved toward enhanced shelters, which allow people to access many services in one place, it seems more likely that people are simply using more services than that there are thousands of new people successfully moving through the homeless service system and into housing every single year.

Meg Olberding, a spokeswoman for the city’s Human Services Department, acknowledges that the 7,400 number “doesn’t reflect the number of individuals” moving from homelessness into housing. She says the exit numbers “are really meant to show how our programs are doing overall. So from our point of view, it doesn’t matter to us if somebody uses one or two or six programs to get to housing, it matters that they get there.”

That makes sense—but it’s not the same thing as “help[ing] over 7,400 households move into permanent housing,” as Durkan put it. Olberding says that the city currently has no way to extrapolate a number of households from that figure. “This is the imperfection of the system as we have it, “she says.

The city’s own guidance on homeless service terminology flags this as an issue (emphasis added):

• Exits are captured for each project type (Prevention, Rapid Rehousing, Emergency Shelter, for example) in HMIS. One exit does not equal one household in HMIS. An exit represents an activity of a household in HMIS.

• For this reason, in the count of total exits to permanent housing, there may be duplicated households. This duplication would occur, for example, when one household uses the services of outreach, shelter, and rapid rehousing to find permanent housing and exit the system. This example would result in three exits, from three project types, for one household.

• HMIS cannot currently support de-duplicating households in the number of total exits to permanent housing.

To characterize each of those “exits” as a “household” or “family” who successfully found housing, therefore, is almost certainly to overstate the success of local programs in getting people into housing—perhaps dramatically. This kind of overstatement can have the perverse result of making it harder to win public support for initiatives to help the thousands of people currently experiencing or at risk of homelessness in Seattle. It isn’t a trivial matter, and it’s something the city itself has noted is a problem.

The second issue with the claim that the city has moved 7,400 families from homelessness to housing in the past year is that the number includes an unknown number of people who are already housed in permanent supportive housing, and stayed in that housing—that is, people who aren’t actually homeless. (People who are actually homeless can be moved into permanent housing through a variety of means, including diversion, prevention, rapid rehousing, and permanent supportive housing, among others.)

The city acknowledges that their count includes people who live in permanent supportive housing and maintain their housing, but they don’t track how many. However, All Home, the agency that tracks homeless service results in King County, does. Extrapolating from the numbers on All Home’s System Performance Dashboard, which includes countywide numbers for 12 months starting in July 2017, and the group’s latest Count Us In report, which estimates that about 70 percent of King County’s homeless population lives in Seattle, it’s possible to estimate that about 3,900 households in Seattle that are counted as exiting from homelessness are in that category because they maintained their existing permanent supportive housing, not because they were homeless and became housed. Durkan took office at the end of 2017, so that extrapolation is obviously not apples to apples. But it does give a sense of how much lower the likely number of actual households moved from homelessness into housing is than the “7,400 households” the mayor claimed.

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The mayor also claimed in her speech that the city has “made investments in our 24/7 shelters that are moving more people out of homelessness than basic shelters ever have” and  “delivered on an historic 25 percent expansion of our City’s shelter space – opening more than 500 new safe places in Seattle.” This statement is confusing, because it conflates a number of different programs—including enhanced shelters (24/7 low-barrier shelters that provide one-stop access to many different services), basic shelters (overnight-only shelters with minimal services) and other kinds of “safe spaces” like authorized encampments. Overall, the city did add 516 new “safe places” between 2017 and 2019. But 220 of these are brand-new basic shelter beds of the kind Durkan (accurately) derided as less effective in her speech, including 100 new overnight beds in a King County shelter at Harborview Hall, plus 80 mats in the lobby of city hall. The 516 “safe spaces” also include motel vouchers for 40 rooms (which accounts for up to 60 “beds”) and space in tiny house encampments for about 100 people. (Under federal HUD criteria, these people are technically considered unsheltered.) Overall, the city added about 366 actual shelter beds (of all kinds) between 2017 and 2018—an achievement, but one that has to be put in context. And the context is that, far from being the kind of enhanced shelter spaces that, as the mayor put it, “are moving more people out of homelessness than basic shelters ever have,” these new spaces are largely examples of the kind of shelters that have shown little success at moving people into permanent housing.

The mayor actually could have highlighted a different number—a promising sign buried in the statistics. Since 2017, the city has done a significant amount of work converting basic shelter beds to enhanced shelters—a significant and important move in the direction of spending money on what works. Here’s what numbers provided by the mayor’s office show:  In 2017, there were 1713 total shelter beds, of which 749 were enhanced—meaning that they included services, allowed people to keep their pets and possessions, and do not kick people out in the morning or require people to line up at night.  By the end of 2018 (“2019” in the chart below), there were 2079 total beds, of which 1411 were enhanced. That’s a major shift away from basic shelter to enhanced shelter—an improvement that the city should absolutely be touting as a success.

