[Federal Register Volume 60, Number 166 (Monday, August 28, 1995)]
[Notices]
[Pages 44550-44631]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-21111]




[[Page 44549]]

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Part II





Department of Housing and Urban Development





_______________________________________________________________________



Office of Policy Development and Research



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Submission of Proposed Information Collection to OMB; Notice

  Federal Register / Vol. 60, No. 166 / Monday, August 28, 1995 / 
Notices  

[[Page 44550]]


DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT

Office of Policy Development and Research
[Docket No. FR-3917-N-18]


Notice of Submission of Proposed Information Collection to OMB

AGENCY: Office of Policy Development and Research, HUD.

ACTION: Notice.

-----------------------------------------------------------------------

SUMMARY: The proposed information collection requirement described 
below has been submitted to the Office of Management and Budget (OMB) 
for review, as required by the Paperwork Reduction Act. The Department 
is soliciting public comments on the subject proposal.

DATES: Comment due date: September 12, 1995.

ADDRESSES: Interested persons are invited to submit comments regarding 
this proposal. Comments must be received within 14 working days from 
the date of this notice. Comments should refer to the proposal by name 
and should be sent to: Joseph F. Lackey, Jr., OMB Desk Officer, Office 
of Management and Budget, New Executive Office Building, Washington, DC 
20503.

FOR FURTHER INFORMATION CONTACT:
Kay F. Weaver, Reports Management Officer, Department of Housing and 
Urban Development, 451 7th Street, SW., Washington, DC 20410, telephone 
no. (202) 708-0050. This is not a toll free number.

SUPPLEMENTARY INFORMATION: This notice informs the public that the 
Department of Housing and Urban Development has submitted to OMB for 
processing an information collection package related to the National 
Survey of Homeless Assistance Providers and Clients (hereinafter 
``survey''). HUD is requesting a review of this information collection 
on or before September 30, 1995.
    The survey will provide estimates of the number and characteristics 
of service providers and an assessment of the types of programs and 
services available to people who are homeless. It will also provide 
detailed characteristics of persons using services. Under the auspices 
of the Interagency Council on the Homeless, the survey is being co-
sponsored by 11 Federal agencies:

Department of Housing and Urban Development
Department of Health and Human Services
Department of Veterans Affairs
Department of Agriculture
Department of Commerce
Department of Education
Department of Energy
Department of Justice
Department of Transportation
Social Security Administration
Federal Emergency Management Agency

    The survey includes two phases: Phase 1 is the collection of 
information on service providers and Phase 2 is the collection of 
information on service users (clients). In Phase 1, the Census Bureau 
will:
    (1) Select a sample of geographic areas;
    (2) Develop a comprehensive list of service providers in the survey 
sample areas;
    (3) Collect basic information from all service providers within the 
sample areas on programs offered, via a computer-assisted telephone 
interview; and
    (4) Select a subsample of providers and collect detailed 
information on programs and services by mail, with telephone followup.

Phase 1 of the national survey is planned to be conducted starting in 
October 1995 and conclude by January 1996.
    In Phase 2, the Census Bureau will:
    (1) Select a sample of service users (clients) within the sample 
areas;
    (2) Select a sample of providers in designated programs; and
    (3) Select clients and conduct personal visit interviews at 
selected service provider facilities.

Phase 2 of the survey is planned to be conducted starting in February 
1996 and conclude by March 1996.
    This request is for clearance to conduct Phase 2 of the survey, the 
collection of information on service users using two instruments:
     NSHAPC--200 Service Users Survey; and
     NSHAPC--300 Roster for Provider Facility.

The information to be requested under the Service Users Survey is 
specified, but the survey form will undergo a final forms design before 
it is administered.
    A pre-test of the NSHAPC was conducted in April 1995 in three 
areas: Atlanta, GA; Pittsburgh, PA (including Allegheny, Fayette, 
Washington, and Westmoreland Counties); and the Armstrong County 
Community Action Agency Catchment area (a rural Community Action Agency 
service area outside Pittsburgh). The survey instruments have been 
revised to reflect the experience gained in the pre-test. The Census 
Bureau sought and obtained substantial expert input over a two-year 
period to develop the survey instruments.
    The Department has submitted the proposal for the collection of 
information, as described below to OMB for review, as required by the 
Paperwork Reduction Act (44 U.S.C. chapter 35):
    (1) the title of the information collection proposal;
    (2) the office of the agency to collect the information;
    (3) the description of the need for the information and its 
proposed use;
    (4) the agency form number, if applicable;
    (5) what members of the public will be affected by the proposal;
    (6) how frequently information submission will be required;
    (7) an estimate of the total number of hours needed to prepare the 
information submission including numbers of respondents, frequency of 
response, and hours of response;
    (8) whether the proposal is new or an extension, reinstatement, or 
revision of an information collection requirement; and
    (9) the names and telephone numbers of an agency official familiar 
with the proposal and of the OMB Desk Officer for the Department.

    Authority: Section 3507 of the Paperwork Reduction Act, 44 
U.S.C. 3507; Section 7(d) of the Department of Housing and Urban 
Development Act, 42 U.S.C. 3535(d).

    Dated: August 17, 1995.
Michael A. Stegman,
Assistant Secretary, Office of Policy Development and Research.
Notice of Submission of Proposed Information Collection to OMB

    Proposal: National Survey of Homeless Assistance Providers and 
Clients (NSHAPC).
    Office: Policy Development and Research.
    Description of the Need for the Information and Its Proposed Use: 
This national survey would provide up-to-date information about the 
providers of homeless assistance and the characteristics of homeless 
persons who use services. The survey will be conducted in 76 areas 
including metropolitan and nonmetropolitan settings. The data will:
    (1) be compared with the findings of a 1987 Urban Institute survey 
of homeless characteristics to understand reported changes in the 
nature of homelessness, especially those related to families with 
children;
    (2) provide a basis for assessing local efforts to construct 
``continuums of care'' for homeless people;

[[Page 44551]]

    (3) be used to develop measures to assess the impact and 
performance of current homeless programs;
    (4) will assist local governments and nonprofit organizations in 
designing more effective more effective local programs; and
    (5) provide a baseline for examining the effects on the homeless 
population of proposed changes to the McKinney homeless assistance 
programs, and America's ``safety net'' programs for the poor (e.g., 
Section 8, AFDC, JTPA, and Medicaid programs).
    Form Number: None.
    Respondents: Homeless service providers and homeless persons.
    Frequency of Submission: One-time.
    Reporting Burden: See attachment.
    Total Estimated Burden Hours: Phase 2, Client Surveys 2,850.
    Status: New survey.
    Contact: James E. Hoben, HUD, (202) 708-0574 X132; George A. 
Ferguson, HUD, (202) 708-1480; Joseph F. Lackey, Jr., OMB, (202) 395-
7316.

    Dated: August 15, 1995.

Supporting Statement

A. Justification

1. Necessity of Information Collection
    The National Survey of Homeless Assistance Providers and Clients 
(NSHAPC) includes two phases: the collection of information on service 
providers and the collection of information on service users (clients).
    Phase 1: In Phase 1, the Census Bureau will:
    (1) Select a sample of geographic areas.
    (2) Develop a comprehensible list of service providers in the 
survey sample areas.
    (3) Collect basic information from all service providers within the 
sample areas on programs offered, via a computer-assisted telephone 
interview.
    (4) Select a subsample of providers and collect detailed 
information on programs and services by mail, with telephone follow-up.

    Note: Steps 1 and 2 must be completed if Phase 2 is conducted.

    Phase 2: In Phase 2, the Census Bureau will:
    (1) Select a sample of service users (clients) within the sample 
areas in two other stages.
    (2) Select a sample of providers in designated programs.
    (3) Select clients and conduct personal visit interviews at 
selected service provider facilities.
    This request is for clearance to conduct Phase 2 of the survey. An 
earlier OMB package was submitted requesting clearance to conduct Phase 
1. This request is for the following forms listed by title and code 
number.
     NSHAPC-200A, Service User Questionnaire.
     NSHAPC-XXXX, Roster for Provider Facility.
    The national survey will provide estimates of the number and 
characteristics of service providers, and an assessment of the types of 
programs and services available to people who are homeless. The survey 
will also provide (in Phase 2) detailed characteristics of persons 
using services. Phase 2 of the national survey is being sponsored by 
the following Federal agencies:
     Department of Health and Human Services (HHS).
     Department of Housing and Urban Development (HUD).
     Department of Veterans Affairs (VA).
     Department of Agriculture (USDA).
     Department of Commerce (DOC).
     Department of Education (ED).
     Department of Energy (DOE).
     Department of Justice (DOJ).
     Department of Transportation (DOT).
     Social Security Administration (SSA).
     Federal Emergency Management Agency (FEMA).
    Data will be collected under HUD's data collections authority.
    As part of the 1990 Census, the Census Bureau enumerated persons 
residing in homeless shelters and pre-identified street locations. 
However, this operation was not designed to provide the full range of 
information needed for guiding policy decisions related to 
homelessness. With this understanding, in September of 1993, the Bureau 
of the Census convened a conference of researchers, representatives of 
public interest groups, and government representatives to discuss ways 
of improving data collection on the homeless population. The consensus 
among this group was that the decennial census is not the appropriate 
vehicle for gathering information on the homeless population. They 
suggested that a new national survey using a updated methodologies to 
obtain an accurate and useful picture of those homeless people who use 
services in the United States is needed.
2. Needs and Uses
    The information the new survey would provide is critical for 
developing the kinds of effective public policy responses needed to 
break the cycle of homelessness, both through targeted programs and the 
leveraging of mainstream resources. This survey would provide up-to-
date information about the characteristics of today's homeless 
population who use services and would tell us how this population has 
changed since 1987 in urban areas. Included in the survey would be the 
first national examination of the characteristics of homelessness in 
rural America, fulfilling a Congressional mandate for a report on this 
subject.
    The national NSHAPC survey would:
    1. Provide national information on the types of services available 
to homeless persons in both urban and rural communities.
    2. Provide information not addressed by the last national study in 
1987 such as: What are the triggering events that precipitate 
homelessness? Where were homeless people living before they became 
homeless? How prevalent is AIDS among homeless persons? What impact 
does rural homelessness have on urban homelessness? What differences 
are there among homeless persons found in cities, suburbs, and rural 
areas?
    3. Tell us what characteristics of the homeless population have 
changed since the 1987 study.
    4. Collect additional information related to drug use, mental 
illness, AIDS, tuberculosis, and previous episodes of homelessness.
    5. Include smaller cities, nonmetropolitan and rural areas in order 
to more accurately and fully reflect homelessness in the United States. 
The survey would interview a sufficient number of people using services 
in 76 geographic areas to ensure reliability of the national estimates. 
Of these 76 geographic areas, 28 would be large metropolitan areas, 24 
would be medium and small metropolitan areas, and 24 would be 
nonmetropolitan areas (small cities and rural areas).

Discussion of Phase 1 Activities

    Phase 1 will be on-going from October 1, 1995 through January 1996. 
Three steps occur in Phase 1.

Step 1: Completing the CATI Interview

    1. Beginning on October 1, 1995, Census Bureau staff will use a 
computer-assisted telephone interview (CATI) to contact all service 
providers in the 76 sample communities. Service providers interviewed 
would include those with programs specifically targeted at the homeless 
(e.g. homeless shelters, soup kitchens, homeless outreach programs) as 
well as other community service providers with programs from which 
homeless individuals are eligible. The purpose of the survey of service 
providers would be to assess the types of programs and service 
available to homeless persons in 

[[Page 44552]]
these metropolitan, suburban, and rural areas. All service providers in 
the areas will be asked about the types of programs offered and basic 
information about each program offered, such as source of funding, days 
of operation, and population group primarily served (e.g., veterans, 
people with mental illness). Prior to the CATI calls, an advance 
letter, NSHAPC--L(1)L will be mailed to each provider.
    To develop the profile of programs offered nationwide, all service 
providers will be asked to complete the NSHAPC Form 100A, Service 
Provider Core Data Questionnaire. This questionnaire collects the 
following information about the service provider and programs offered 
at that address:
     Name.
     Contact for the facility.
     Address.
     Telephone Number.
     Type of Facility.
     Programs Provided.
    The following information will be collected for each program 
offered:
     Average Number of Adults and Children Participating in 
Programs On A Daily Basis, and Percent Homeless.
     Average Number of Adults and Children the Facility Serves 
On A Daily Basis.
     Familial Status of Persons the Facility Serves On A Daily 
Basis.
     Public or private affiliation.
     Source of funding.
     If the program is targeted to a specific subpopulation 
group.
     Number of Facilities Under Contract To, or Accepting 
Vouchers.
     Expected Days of Operation for each program in February, 
1996.
     Contact person for each program.

Step 2: Reviewing the List of Service Providers

    Once the CATI interview is completed, service providers will be 
mailed a comprehensive list of service providers in the sample areas. 
Service providers are asked to review the list for completeness and 
accuracy. We are asking providers to correct any incorrect entries and 
to identify service providers that are omitted from the list. The 
updated lists will be mailed back to the Census Bureau for update. 
After receipt of the reviewed list, Census Bureau personnel will remove 
duplicate entries from the list and prepare a master list of service 
providers. New service providers added to the list will then be 
contacted and Census Bureau staff will administer the CATI interview.
    The Census Bureau plans to generate listings of service providers 
for each of the sample areas in the survey and mail, NSHAPC Form 100-M, 
List of Providers Offering Homeless Programs and the NSHAPC--L(2) 
letter to all service providers shown on the comprehensive list and all 
knowledgeable local persons. The knowledgeable local persons and 
service providers will be asked to review the listing of all service 
providers in their area for completeness, and to add any missed service 
providers to the list. NOTE: A sample of providers will be asked to 
provide additional information about the services they offer. This is 
discussed below under Phase 1, Step 3.
    The Census Bureau is obtaining copies of national files of service 
providers from national organizations, Federal agencies, and from 
Community Action Program (CAP) coordinators. The Census Bureau has 
obtained a copy of lists of service providers from the following 
Federal agencies: FEMA, Health and Human Services, Veterans Affairs, 
Housing and Urban Development, and Labor. National organizations, such 
as the National Coalition for the Homeless, National Alliance to End 
Homelessness, National Law Center on Homelessness and Poverty, National 
Network of Runaway and Youth Services, Catholic Charities, Better Homes 
Foundation, and Volunteers of America, Inc. have provided lists to the 
Census Bureau. The Census Bureau plans to unduplicate and merge these 
files into one comprehensive listing of service providers. This 
comprehensive list will be used as the initial sampling frame for 
identifying and interviewing service providers in the sample areas.
    The local update may also provide the Census Bureau with additional 
names of service providers and local persons or organizations 
knowledgeable about homeless services. (Federal, State, and Local 
Agencies may not have the name of a service provider if the provider 
does not receive any federal, state, or local funding.
    Census Bureau personnel also will contact the state homeless 
coordinator designated under the McKinney Homeless Assistance Act. The 
Census Bureau will tell them about the survey, indicate which counties 
in their state are included in the survey, and provide them with a list 
of service providers in each of the sample areas. The state 
coordinators will be asked to review the list of service providers and 
note any additions or changes.


    Note: Census Bureau personnel have already completed some 
initial contacts with federal and state government offices, 
agencies, organizations, and knowledgeable local persons to begin 
compiling a national list of service providers.
    Shelters for abused women and runaway youths will not be on the 
listings to be reviewed by service providers but are included in the 
sampling frame. This is to preserve the confidential locations of 
shelters for abused women and runaway youth.


    The Census Bureau will use the master list of service providers as 
the frame to select the sample of service providers who will receive 
the detailed-program questionnaires and to select the sample of 
provider facilities where client interviewing will be conducted.
Step 3: Completing the Detailed Information on Programs and Services

    Once the CATI interviews are completed, a subsample of service 
providers will be asked to provide more detailed information about the 
specific programs and services offered at their facility. Separate 
questionnaires for each program have been developed. Program managers 
will be asked to complete a questionnaire by mail for each program they 
administer. For each program offered, program managers will receive a 
copy of the appropriate program questionnaire and the NSHAPC L(3)L 
letter. Census Bureau staff will follow-up by telephone for all 
nonresponding providers.

Discussion of Phase 2 Activities

    The second phase of the survey would consist of interviewing a 
sample of persons using services at homeless shelters, soup kitchens, 
and other service locations where homeless people are found. 
Respondents will be asked to complete NSHAPC Form 200A, Service User 
Questionnaire (See Attachment A). To facilitate the sampling, we are 
asking providers to complete Form NSHAPC 300, Roster for Providers (See 
Attachment B). Providers will be asked to list all clients using the 
housing program on the day of the interview. Interviews will take place 
continuously over a four-week period in order to obtain a 
representative sample. In addition to providing data on characteristics 
of the portion of the homeless population who use services, this phase 
of the survey would identify homeless subgroups and help determine 
their use of various types of assistance programs. It would also 
collect limited comparative data on housed persons with very low 
incomes who also rely on soup kitchens and other emergency assistance.
    The survey will estimate characteristics at the national level 
only. The sample size is not large enough to produce estimates of 
client characteristics at the regional or local levels.

[[Page 44553]]

    In 1987, the Urban Institute completed a survey of homeless 
persons. Data from the 1987 Urban Institute study represent the only 
national level data specific to homeless persons. Since the 1987 study, 
no significant national studies have been conducted to provide national 
information about the characteristics of homeless persons using 
services for homeless people.
    NSHAPC data will be used to plan future programs and services 
funded via the McKinney Homeless Assistance Act and other homeless 
programs to prevent homelessness as well as ameliorate it. 
Understanding the causes of homelessness can help guide the development 
of preventive strategies. Data from the NSHAPC will be used by the 
participating agencies to prepare reports in accordance with the 
requirements of the McKinney Homeless Assistance Act and other homeless 
assistance programs.
    The following targeted programs will benefit from the data 
collected in the NSHAPC.

Emergency/Temporary Shelter Assistance

Emergency Food and Shelter Program (FEMA)--Assistance directed toward 
temporary shelter
Emergency Shelter Grants Program (HUD)
Shelter for the Homeless [Department of Defense (DOD)]
Homeless Support Initiatives--Surplus Blankets (DOD)

Food and Nutrition Assistance

Commodities for Soup Kitchens (USDA)
Emergency Food and Shelter Program--Food Assistance (FEMA)
Commissary/Food Bank Initiatives (DOD) and [Department of 
Transportation (DOT)]
Federal Grain Inspection Service--Donation of Surplus Samples (USDA)

General Health Assistance

Health Care for the Homeless Grant Program (HHS)
Domiciliary Care for Homeless Veterans Program (VA)

Assistance to Homeless Persons With Disabilities

Projects for Assistance in Transition from Homelessness (PATH) (HHS)
Access to Community Care and Effective Services and Supports (ACCESS) 
(HHS)
Community Support Program--homeless-specific portion (HHS)
National Institute of Health (NIH) Research on Homeless (HHS)
Homeless Chronically Mentally Ill Veterans Program (VA)
Safe Havens (HUD)
National Institute of Alcohol Abuse and Alcoholism (NIAAA) Research 
Demonstration on Homelessness (HHS)
Drug Abuse Prevention for Runaway and Homeless Youth (HHS)

Education, Training, and Employment Assistance

Educ. Homeless Children & Youth State Grants Prog. (ED)
Exemplary Projects Program--Homeless Children (ED)
Adult Education for the Homeless (ED)
Job Training for the Homeless Demonstration Program (DOL)
Homeless Veterans Reintegration Project (DOL)

Housing Assistance

Transitional Housing Demonstration Program (HHS)
Supportive Housing Demonstration (HUD)
Section 87 Assistance for SROs (HUD)
Single Family Property Disposition Initiatives (HUD)
Transitional Living Program for Homeless Youth (HHS)
Farmer's Home Administration (FMHA) Homes for the Homeless (USDA)
Shelter for Homeless Vets--Acquired Property Sales (VA)
Base Closure Properties (DOD, HUD)

Homeless Prevention

Emergency Food and Shelter Program (FEMA)--Prevention Assistance
Emergency Community Services Homeless Grant Program (HHS)

General/Misc. Aid to Homeless Providers

Emergency Community Services Homeless Grant Program (HHS)
Excess and Surplus Federal Real Property [General Services 
Administration (GSA)/(HUD)/(HHS)]
Runaway and Homeless Youth Program (HHS)

Programs for Homeless Children/Youth/Families

Family Support Centers (HHS)
Transitional Housing Demonstration Program (HHS)
Supportive Housing Demonstration (HUD)
Educ. for Homeless Children and Youth State Grants Program (ED)
Exemplary Projects Program--Homeless Children (ED)
Runaway and Homeless Youth Program (HHS)
Transitional Living Program for Homeless Youth (HHS)
Drug Abuse Prevention for Runaway and Homeless Youth (HHS)
Programs for Homeless Veterans

Domiciliary Care for Homeless Veterans Program (VA)
Homeless Chronically Mentally Ill Veterans Program (VA)
Shelter for Homeless Vets--Acquired Property Sales (VA)
Homeless Veterans Reintegration Project (DOL)
    Each agency was asked to identify their data needs and to rank the 
importance of those data requirements. From this ranking, we developed 
the Service User Questionnaire, NSHAPC--Form 200A. Listed below is a 
discussion of the survey questions on the Respondent Questionnaire and 
how the data will be used by HUD, HHS, VA, USDA and the other Federal 
agencies. Section numbers correspond to the section numbers on the 
questionnaire.
    Service User Questionnaire Cover Page--Items N and O--on the cover 
page asks the respondent's name and age. Collection of the name (along 
with the other variables described in Section 4) will be used to 
eliminate duplicate interviews. Because the sampling and data 
collection design calls for multiple visits to each provider site, and 
because one homeless person could be found in more than one sampling 
frame (e.g., in both soup kitchens and shelters), unduplicating is 
central to the process of estimating the size of the population.
    Question 64a asks for the respondent's social security number. 
Question 64b asks for the first five digits of the respondent's social 
security number if the respondent refuses to give their entire social 
security number. These questions, along with the name and the other 
variables described above, are being collected for purposes of 
unduplicating respondents.

Section 1: Current Living Condition

Questions 1a-7
    These questions determine whether or not the respondent is 
homeless, and are considered essential by all participating agencies. 
With minor modifications, they are the same screening questions used in 
Rossi's (1986) Chicago studies, in the National Institute on Drug Abuse 
(NIDA, 1992) Washington, D.C. Metropolitan Area Drug Study (DC*MADS), 
and in the Urban Institute's national study (Burt and Cohen, 1988, 
1989) which the NSHAPC methodology is designed to parallel and extend. 
For purposes of continuity and comparison, it is important that they 
remain essentially the same as they were in earlier studies.

[[Page 44554]]


Section 2: Without Permanent Housing

Section 3: Currently With Permanent Housing

Section 2, Questions 8a-10, 24-27
Section 3, Questions 33a-40
    The answers to these questions are necessary to make estimates of 
the size of the homeless population. Sampling and estimation experts 
from the Urban Institute and the Census Bureau developed the questions. 
Questions 8 and 9 parallel similar questions asked in the 1987 Urban 
Institute study.
    The Census Bureau requires Question 33B to determine if asking 
respondents to report names of shelters can be used to assess the 
completeness of the survey's list of shelters.
Section 2, Questions 11-23, 28-32
Section 3, Questions 41-55
    These questions are needed to understand the circumstances 
affecting the respondent in the period immediately before becoming 
homeless. They have been compiled from similar questions asked in the 
1987 Urban Institute study, the DC*MADS study, and other studies. These 
previously used questions were augmented by questions or item content 
which pretests revealed to be necessary to give a reasonable 
understanding of the respondent's experiences. They will reveal the 
proximate causes of each individual's current homeless episode (or 
their last homeless episode if they are not now homeless but have been 
homeless in the past).
    HHS considers these questions to be essential and the VA considers 
them highly desirable. Other agencies whose mission includes efforts to 
prevent homelessness as well as ameliorate it may also consider them 
desirable. An understanding of proximate causes can help guide the 
development of preventive strategies.
Section 2, Questions 11-15
Section 3, Questions 41-44
    These questions are either identical to or minor modifications of 
questions asked in the 1987 Urban Institute study. We modified the 
wording of some questions to make sure that the respondent and the 
researcher mean the same thing by their answers (e.g., on Question 13, 
some women living with their children will say they live alone, because 
they do not live with a spouse or boyfriend. We want to be sure that 
``alone'' means ``alone.'')
Section 2, Questions 16 a and b
Section 3, Questions 45 a and b
    These questions are modified versions of a question asked in the 
1987 Urban Institute study. We changed the format from obtaining only a 
single response to probing for all relevant responses and then asking 
the respondent to identify the primary reason. This eliminates the 
difficulty in interpreting single responses such as Respondent 1 saying 
``couldn't pay the rent,'' Respondent 2 saying ``lost my job,'' and 
Respondent 3 saying ``Was doing drugs,'' when all three could not pay 
the rent because they lost their jobs because they were doing drugs.
Section 2, Questions 17-19
Section 3, Questions 46-47c
    These questions were not in the 1987 Urban Institute study.
    Subsequent research by NIDA (1992) indicates that many homeless 
people spend a considerable amount of time in institutions or in 
temporary arrangements with friends or family between the interview 
date and the time when they last had a permanent place to stay 
(Question 11). In other words, they are not literally homeless during 
the whole period since they last had a permanent place to stay. The 
answers to these questions will let us determine how much of the time 
they were literally homeless.
Section 2, Question 20
    We want this question included to learn whether respondents have 
any experience in the housing market on their own. Never having been a 
primary tenant has been shown (Weitzman, 1989) to differentiate 
homeless from never-homeless families.
Section 2, Questions 21-23
Section 3, Questions 48-50
    HHS requested these questions. Local studies (Piliavin, Sosin, and 
Westerfelt, 1986; Sosin, Colson and Grossman, 1988) have shown 
seriously elevated rates of childhood experiences in foster care among 
the adult homeless. The answers to these questions will help identify 
the prevalence of childhood out-of-home placement and runaway behavior 
among the adult homeless population for the first time on a national 
sample. High prevalence could indicate a preventive role in programs 
within HHS responsibility.
Section 2, Questions 28-32
Section 3, Questions 51-55
    These questions are of interest to Department of Agriculture--
Farmers Home Administration (FmHA), FEMA, and HHS' Health Care for the 
Homeless program--the federal agencies supporting emergency services. 
Answers to these questions will provide some explanation of the 
movement of homeless people from one type of community to another, such 
as the push of no services or no jobs in the community left behind and 
the pull of expected services and economic opportunities in the 
community where respondents are interviewed. They will also help 
identify the conditions that generate homelessness, which may not be 
the same conditions as those in the community where homeless people are 
interviewed.

Section 4: Demographics

Questions 56-64a
    All the sponsoring agencies consider basic demographic questions 
which describe the population to be essential. In addition, Question 60 
may help explain a lack of participation in the labor force at the time 
of the interview, and Questions 61a, 61b, 62a and 62b provide data 
about possible educational difficulties and deficits in addition to the 
simple fact of ``last grade completed.'' They may help define possible 
prevention strategies.
Questions 58, 64, and 64a
    Questions 58 asks for the respondent's date of birth. The date of 
birth serves a very important purpose of eliminating duplicate 
interviews. A unique identifier is created using the respondent's date 
of birth, gender, and one or two other variables. The data set is then 
searched for duplicates. Because the sampling and data collection 
design calls for multiple visits to each provider site, and because one 
homeless person could be found in more than one sample frame (e.g., in 
both soup kitchens and shelters), unduplicating is central to the 
process of estimating the size of the population.
    Question 64a asks for the respondent's social security number. 
Question 64b asks for the first five digits of the respondent's social 
security number if they refuse to give their entire Social Security 
Number in response to question 64a. These are being collected as one of 
the other unduplicating variables. The Bureau of the Census, HHS, and 
the other sponsoring agencies will hold this information in the 
strictest of confidence and will ensure it is available only to 
researchers at HHS, the other sponsoring agencies and Bureau of the 
Census staff.

[[Page 44555]]


Section 5: Children and Education

Questions 65-71h
    ED and HHS consider these questions to be essential. Answers to 
this set of questions will show the degree to which homelessness has 
split families, and which children have been separated from their 
parent(s). This information is important for planning reunification, 
housing, and other needs of homeless families.
    The information is of primary interest to ED, and the questions 
about school attendance and barriers are directly relevant to ED's 
agency mission under the McKinney Act and Congressional directives to 
gather this information and report it to Congress.
Questions 71b and 71d
    We added the pre-school content of these questions for children 
ages 3-5 at the specific request of HHS. ED requested the other content 
of these questions.
Questions 71g, 71h
    We added the questions about day care at the specific request of 
HHS.
Question 72
    All participating agencies consider this question, on the 
composition of homeless households to be essential.
Question 73
    HHS specifically requested that this question be included on the 
questionnaire. A pregnancy experienced by a precariously housed woman 
has been shown to make her more vulnerable to literal homelessness 
(Weitzman, 1989).

Section 6: Employment

Questions 74-79
    HHS considers these questions to be essential, and the VA considers 
them desirable. Where the Bureau of Labor Statistics (BLS) routinely 
asks questions with appropriate content in its national surveys, we 
adopted the BLS working for this survey so answers for the homeless can 
be compared with nationally representative data.

Section 7: Sources of Income and Service Use

Questions 80-84
    HHS considers all questions in this section to be essential. VA 
also considers Question 80 essential. These questions describe receipt 
of benefits, other income sources, and total income for the month 
before the interview. They also describe respondent experiences with a 
variety of HHS, USDA, and local government benefits, including any 
change of benefits that might have played a role in the respondent 
becoming homeless.

Section 8: Veteran Status

Questions 85-89
    The VA submitted these questions and considers them essential. In 
particular, they have no other national source of data in war zone or 
combat exposure (Questions 87 and 88), which may play a critical role 
in the need for services as an antecedent of homelessness.

Section 9: Food Intake

Questions 90-93
    These questions are considered essential by HHS and USDA.
Questions 94a-95b
    The Census Bureau needs these questions to estimate the proportion 
of persons receiving food that are poor but housed and those who are 
homeless.
    The Census Bureau requires Question 95b to determine if asking 
respondents to report names of soup kitchens can be used to assess the 
completeness of the survey's list of soup kitchens.

Section 10: Current Physical Health

Question 96
    HHS and VA consider this item essential.
Questions 97-117
    HHS considers questions 97-107 to be essential. For many questions, 
the set of items to be asked about were specified by agency personnel 
(e.g., specific health conditions for Question 96, specific service 
sites for Question 99; all of Questions 101 and 103).
    The VA needs information about the use of VA facilities. The VA 
considers the VA-relevant information in Question 99 essential, as it 
will assist them in determining whether veterans are using other 
medical facilities to the exclusion of, or in addition to, VA 
facilities.

Section 11: Victimization and Imprisonment

Questions 118a-120c
    HHS, ED and VA requested that these questions be included on the 
questionnaire. Several divisions of HHS specifically requested all of 
the components of Question 120, and question 118c (juvenile detention). 
A great deal of evidence suggests that parental neglect and abuse 
(asked about in Questions 120a-c) is implicated in runaway behavior and 
youth homelessness (Robertson, 1991). It is also obviously a precursor 
of childhood out-of-home placement, which in turn is associated with 
both youth and adult homelessness. (Piliavin, Sosin and Westerfelt, 
1986; Sosin, Colson and Grossman, 1988). The answers to these questions 
will reveal the degree to which the present homeless population has 
these experiences in their background as potential contributing factors 
to their homelessness.

Section 12: Mental Health

Questions 121a-126c
    HHS considers these questions essential. The remaining agencies 
completing the ratings considered them highly desirable. Given the 
evidence for serious mental illness among sizable proportions of the 
homeless population, these questions will provide data to understand 
how mental illness relates to the many other factors included in the 
interview protocol, including use of services and benefit receipt.
Questions 121a-124
    Questions 121a-124 are taken directly from the Psychiatric section 
of the Addiction Severity Index (ASI), an instrument developed by NIAAA 
to assess addictions and related conditions. These questions form a 
scale; answers are summed to form a score, which can be compared to 
national norms for this segment of the ASI. The ability to compare 
homeless people's responses to a national norm will let us determine 
where homeless people fit on the continuum of mental health problems. 
All items in Questions 121a-124 must be present to construct the scale 
score.
Questions 125-126c
    Questions 125-126c are also taken from the ASI, with minor 
modifications as accepted by NIMH's Program for the Homeless Mentally 
Ill. They give evidence of treatment patterns (or lack thereof), and 
will supply NIMH with an estimate of unmet service need, as well as the 
usual sources of care sought by the homeless mentally ill.

Section 13: Chemical Dependency

Questions 127a-150
    HHS considers these questions essential. The remaining agencies 
completing the ratings consider them highly desirable. Given the 
evidence for substance abuse among sizable proportions of the homeless 
population, these questions will provide data to understand how 
alcoholism and drug abuse relate to the many other factors included in 
the interview protocol--especially antecedents of homelessness.

[[Page 44556]]

Questions 127a-132, 142-144
    Questions 127a-132 and 142-144 are taken directly from the 
Addiction Severity Index (ASI, McLellan et al., 1991, see above). These 
questions form several scales; answers are summed to form scores, which 
can be compared to national norms and norms for treatment populations 
for this segment of the ASI. The ability to compare homeless people's 
responses to national norms and norms for treatment populations will 
let us determine where homeless people fit on the continuum of chemical 
dependency problems. All items in Questions 127a-132 and 142-144 must 
be present to construct the scale score, and NIAAA has strongly 
expressed an interest in seeing the scales included in their entirety 
on this interview protocol.
Questions 135-139, 147-150
    Questions 135-139 (for alcohol treatment) and 147-150 (for drug 
treatment) are also taken from the ASI, with minor modifications as 
accepted by NIAAA/NIDA. They give evidence of treatment patterns (or 
lack thereof), and will supply NIMH with an estimate of unmet service 
need, as well as the usual sources of care sought by homeless substance 
abusers.
Questions 133, 144
    The items in these questions are taken from the Short Michigan 
Alcoholism Screening Test (Question 122--Selzer, Vinokur, and van 
Rooijen, 1975) and the Drug Abuse Screening Test (Question 132--
Skinner, 1982). Both of the original instruments are too long to 
include in this study in their entirety (24 and 28 items, 
respectively). However, the inclusion of some measure of symptomatology 
related to substance abuse was felt to be important, to detect the 
level of functional impairment related to substance abuse among those 
who never sought treatment as well as among those who have. In each 
case the eight items selected are those with the highest correlations 
with the total scale score for the original scale (r=.7 or higher). 
Scores based on these selected items should function in virtually the 
same way as scores we would obtain if we used all of each instrument.
Questions 134, 145
    These questions assess the respondent's age when heavy alcohol or 
drug use began. We are including these questions to assure that we will 
know the duration of the respondents' substance abuse problems. Answers 
to these questions augment the information on the earliest and most 
recent treatment, and will provide a more complete picture of the 
respondents' involvement with alcohol and drugs.
Question 151
    This question is asked so that respondents can provide their 
general impressions on the availability and quality of services in 
their community.
3. Efforts to Minimize Burden
    Not applicable. Respondents are individuals at service sites who 
cannot respond with computer tapes or disks. We are also minimizing the 
burden of the FEMA Local Board Contact Persons, government contacts, 
service providers and knowledgeable local persons by giving them the 
combined listing of service providers to review as opposed to asking 
them to list all service providers in their area.
4. Efforts to Identify Duplication, and Use of Available Information
    HUD consulted with other government agencies and outside experts 
and determined that the proposed national NSHAPC will be the only 
current, national data source with detailed information on the types 
and availability of programs and services offered and on the 
characteristics of literally homeless persons who use services. The 
most recent national data is the 1987 Urban Institute Study.
    In March 1987, the Urban Institute conducted a survey of homeless 
persons who used services in cities of 100,000 or more. The NSHAPC is 
intended to parallel and extend the methodology used by the Urban 
Institute in the 1987 survey to capture a higher proportion of the 
literally homeless population who use services.
    a. The NSHAPC will include additional geographical coverage. Cities 
with populations of 100,000 or less and areas outside of cities will be 
included in the survey sample. (The 1987 Urban Institute survey only 
included cities with populations over 100,000.)
    b. The NSHAPC will include additional topic coverage. The client 
questionnaire covers more topics and in greater depth than was covered 
in the 1987 Urban Institute Survey. There are also some questions 
similar to those in the 1987 survey so that a comparison may be made 
between the results of the two surveys. (The 1987 Urban Institute 
survey only asked about drug treatment. The NSHAPC asks about drug 
treatment, as well as, types and frequencies of drugs used, and 
information about mental health.)
    c. The interview period for client interviews for the national 
survey will be one month. The interview period for the Urban 
Institute's 1987 survey was one week.
    While the results from the Urban Institute's 1987 survey provide 
characteristics of homeless persons who used services, it does not 
include the NSHAPC's additional emphasis on geographical and topic 
coverage as described in A.4. The 1987 study did not provide any 
information on the types of programs and services offered. The Urban 
Institute survey is also almost 10 years old. More recent information 
is needed. Thus, there is no similar information available that could 
be used or modified for use for the purposes described.
5. Minimizing Burden on Small Businesses
    The Census Bureau plans on using the combined files from Federal 
agencies and national organizations and advocacy groups to generate 
listings of service providers for each sample area in the survey and 
mail the listings to all service providers contacted by telephone and 
all knowledgeable local persons. The knowledgeable local persons and 
service providers will be asked to review the listing for completeness 
of all service providers in their area and to add any missed service 
providers to the list. The state homeless coordinator will only be 
asked to review the listing of service provider (Form NSHAPC 100M). The 
Census Bureau believes the file will provide an initial comprehensive 
listing of service providers currently offering services to the 
homeless thus reducing the burden of the service providers, government 
contacts, and knowledgeable local persons. No small businesses will be 
contacted.
6. Consequences of Less Frequent Collection
    Not applicable. This is a one-time survey. Phase 1 will be 
conducted from October 2, 1995 to January 15, 1996, and Phase 2 from 
January 21 to March 30, 1996.
7. Consistency With 5 CFR 1320.6
    The Census Bureau will collect these data in a manner consistent 
with the guideline in 5 CFR 1320.6.
8. Consultations Outside the Agency
    Consultations have been made with the following people:

Dr. Martha, Burt, The Urban Institute, 2100 M Street, NW., 
Washington, DC 20037, Tel: (202) 857-8551
Ms. Lorraine Reilly (formerly of), The Urban Institute, 2100 M 
Street, NW., Washington, DC 20037, Tel: (202) 857-8551
Dr. Michael Dennis, Research Triangle Institute, Center for Social 
Research and 

[[Page 44557]]
Policy Analysis, P.O. Box 12194, Research Triangle Park, NC 27709-2194, 
Tel: (919) 541-6429
Dr. Greg Owen, Wilder Foundation, Wilder Research Center, 1295 
Bandana Blvd., North--Suite 210, St. Paul, MN 55108-5197, Tel: (612) 
647-4612
Ms. Joanne Wiggens, U.S. Dept. of Education, 600 Independence 
Avenue, SW--Room 4143, Washington, DC 20202, Tel: (202) 401-1958
Mr. Tom Fagen, U.S. Dept. of Education, 400 Maryland Avenue, SW--
Room 2043, Washington, DC 20202, Tel: (202) 401-1682
Mr. John Pentecost, USDA--FmHA, Room 5345--South, MFHD--PD, 
Washington, DC 20250, Tel: (202) 720-8983
Mr. Tom Sanders, USDA--FmHA, Room 5343--South, MFHD--PD, Washington, 
DC 20250, Tel: (202) 720-1626
Ms. Amy Donoghue, USDA--FmHA--PAS, 3101 Park Center Drive--Room 
1130, Alexandria, VA 22302, Tel: (703) 305-2920
Ms. Jean Whaley, Dept. of Housing and Urban Development, 451 Seventh 
Street, SW--Room 7267, Washington, DC 20410, Tel: (202) 708-1234
Ms. Jane Karadbil, Dept. of Housing and Urban Development, 451 
Seventh Avenue, SW--Room 8112, Washington, DC 20410, Tel: (202) 708-
1537
Mr. Lafayette Grisby (formerly of), Dept. of Labor, Room N-5637, 200 
Constitution Avenue, NW., Washington, DC 20210, Tel: (202) 535-0677
Mr. John Heinberg, Dept. of Labor, Room N-5637, 200 Constitution 
Avenue, NW., Washington, DC 20210, Tel: (202) 535-0682
Mr. David Lah, Dept. of Labor, Room N-5637, 200 Constitution Avenue, 
NW., Washington, DC 20210, Tel: (202) 535-0682
Mr. Pete Dougherty, Homeless Programs Specialist, Dept. of Veterans 
Affairs, 801 Vermont Avenue, NW., Washington, DC 20420, Tel: (202) 
273-5716
Mr. Eric Lindblom (IIIC) (formerly of), Office of Mental Health, 
Dept. of Veterans Affairs, 801 Vermont Avenue, NW., Washington, DC 
20420, Tel: (202) 535-7311
Dr. Robert Rosenheck, MD, VA Medical Center, NEPEC--182, 950 
Campbell Avenue, West Haven, CT 06516, Tel: (203) 937-3850
Ms. Cynthia Taeuber, Office of the Deputy Director, Bureau of the 
Census, Washington, DC 20233, Tel: (301) 457-4358
Ms. Annetta Clark, Special Places/Group Quarters Team, Office of the 
Assistant Division Chief, Population Division, Bureau of the Census, 
Washington, DC 20233, Tel: (301) 457-2378
Ms. Denise Smith, Special Places/Group Quarters Team, Office of the 
Assistant Division Chief, Population Division, Bureau of the Census, 
Washington, DC 20233, Tel: (301) 457-2378
Dr. Charles H. Alexander, Demographic Statistical Methods Division, 
Bureau of the Census, Washington, DC 20233, Tel: (301) 457-4290
Mr. David Hubble, Victimization and Expenditure Branch, Demographic 
Statistical Methods Division, Bureau of the Census, Washington, DC 
20233, Tel: (301) 457-4239
Ms. Marjorie Dauphin, Victimization and Expenditure Branch, 
Demographic Statistical Methods Division, Bureau of the Census, 
Washington, DC 20233, Tel: (301) 457-4190
Ms. Miriam Rosenthal (formerly of), Victimization and Expenditure 
Branch, Demographic Statistical Methods Division, Bureau of the 
Census, Washington, DC 20233, Tel: (301) 457-4270
Mr. David Hornick, Victimization and Expenditure Branch, Demographic 
Statistical Methods Division, Bureau of the Census, Washington, DC 
20233, Tel: (301) 457-4190
Mr. John Bushery, Quality Assurance and Evaluation Branch, 
Demographic Statistical Methods Division, Bureau of the Census, 
Washington, DC 20233, Tel: (301) 457-1915
Ms. Andrea Meier, Quality Assurance and Evaluation Branch, 
Demographic Statistical Methods Division, Bureau of the Census, 
Washington, DC 20233, Tel: (301) 457-1983
Mr. Michael McMahon, Field Division, Bureau of the Census, 
Washington, DC 20233, Tel: (301) 457-4901
Mr. Chester Bowie, Demographic Surveys Division, Bureau of the 
Census, Washington, DC 20233, Tel: (301) 457-3773
Mr. Steven Tourkin, Methods, Procedures and Quality Control Branch, 
Demographic Surveys Division, Bureau of the Census, Washington, DC 
20233, Tel: (301) 457-3791
Ms. Jacquie Lawing, Deputy Assistant Secretary for Economic 
Development, Department of Housing and Urban Development, 451 
Seventh Street, SW, Suite 7204, Washington, DC 20410, Tel: (202) 
708-2070
Mr. Mark Johnston, Senior Advisor on Homelessness, Department of 
Housing and Urban Development, 451 Seventh Street, SW, Suite 7274, 
Washington, DC 20410, Tel: (202) 708-5528
Mr. Mike Roanhouse, Office of Special Needs Assistance, Department 
of Housing and Urban Development, 451 Seventh Street, SW, Suite 
7258, Washington, DC 20410, Tel: (202) 708-1234
Mr. James Hoben, Office of Policy Development and Research, 
Department of Housing and Urban Development, 451 Seventh Street, SW, 
Washington, DC 20410, Tel: (202) 708-0574
Mr. Keith Lively, Acting Deputy Assistant Secretary for Program 
Systems, Department of Health and Human Services, 200 Independence 
Avenue, SW., Room 447D, Washington, DC 20201, Tel: (202) 690-8774
Mr. Gerald Britten (formerly of), Deputy Assistant Secretary for 
Program Systems, Department of Health and Human Services, 200 
Independence Avenue, SW., Room 447D, Washington, DC 20201, Tel: 
(202) 690-8774
Ms. Mary Ellen O'Connell, Office of the Assistant Secretary for 
Planning and Evaluation, 200 Independence Avenue SW., Room 447D, 
Washington, DC 20201, Tel: (202) 260-0391
Mr. Fred Osher (formerly of), Office of Programs for the Homeless 
Mentally Ill, National Institute of Mental Health, Dept. of Health 
and Human Services, Parklawn Bldg., Room 3C06, 5600 Fishers Lane, 
Rockville, MD 20857, Tel: (301) 443-3706
Mr. Walter Leginski, Homeless Programs Branch, Center for Mental 
Health Services, Parklawn Building, room 11c-05, Rockville, MD 20857
Dr. Robert Huebner, Ph.D., Health Services Research Branch, National 
Institute of Alcohol Abuse and Alcoholism, Dept. of Health and Human 
Services, Willow Building, Suite 505, 600 Executive Boulevard, 
Rockville, MD. 20892-7003, Tel: (301) 443-0786
Mr. Steve Bartolomei-Hill, Human Service Policy, Office of the 
Assistant Secretary for Planning and Evaluation, Dept. of Health and 
Human Services, Hubert H. Humphrey Bldg., Room 410E, 200 
Independence Avenue, SW., Washington, DC 20201, Tel: (202) 690-7148
Ms. Rhoda Davis, Office of Supplemental Security Income, Dept. of 
Health and Human Services, Altmeyer Building, 6401 Security Blvd., 
Baltimore, MD 21235, Tel: (410) 965-6210
Ms. Terry Lewis, Administration on Children, Youth, and Families, 
Administration for Children and Families, Dept. of Health and Human 
Services, Mary E. Switzer Bldg., Room 2426, 330 C Street, SW., 
Washington, DC 20201, Tel: (202) 205-8051
Dr. Joan Turek Brezina, Ph.D., Program Systems, Office of the 
Assistant Secretary for Planning and Evaluation, Dept. of Health and 
Human Services, Hubert H. Humphrey Bldg., Room 444F, 200 
Independence Avenue, SW., Washington, DC 20201, Tel: (202) 690-6141
Mr. Mike Jewell (formerly of), Office of the Assistant Secretary for 
Planning and Evaluation, Dept. of Health and Human Services, Hubert 
H. Humphrey Bldg--Room 447D, 200 Independence Avenue, SW., 
Washington, DC 20201, Tel: (202) 690-7316
Ms. Peg Washnitzer, Office of Community Services, Administration for 
Children and Families, Dept. of Health and Human Services, Aerospace 
Bldg., 7th Floor, 370 L'Enfant Promenade, SW., Washington, DC 20447, 
Tel: (202) 401-2333
Mr. Richard Chambers, Division of Intergovernmental Affairs, Health 
Care Financing Administration, Dept. of Health and Human Services, 
Hubert H. Humphrey Bldg., Room 410B, 200 Independence Avenue, SW., 
Washington, DC 20201, Tel: (202) 690-6257
Ms. Joan Holloway, Health Resources and Services Administration, 
Public Health Services, Dept. of Health and Human Services, Parklawn 
Bldg., Room 9-12, 5600 Fishers Lane, Rockville, MD 20857, Tel: (301) 
443-8134
Ms. Marsha A. Martin (formerly of), Executive Director, Interagency 
Council on the Homeless, 457 Seventh Street, NW., Washington, DC, 
Tel: (202) 708-1480

[[Page 44558]]

Mr. George Ferguson, Interagency Council on the Homeless, 457 
Seventh Street, NW., Washington, DC, Tel: (202) 708-1480
Ms. Della Hughes, National Network of Runaway and Youth Services, 
1319 F Street, N.W., Suite 401, Washington, DC 20004, Tel: (202) 
783-7949
Ms. Vera Johnson, SASHA Bruce Center Runaway Shelter, 1022 Maryland 
Avenue, NE., Washington, DC 20002, Tel: (202) 675-9340

    As a result of these consultations, all issues were resolved.
9. Assurance of Confidentiality
    The provisions of the Privacy Act of 1974 (5 USC 552a) assure the 
confidentiality of the data from this survey.
    During Phase 2 of the national survey, the field representatives 
will inform all service providers and respondents verbally of the 
confidentiality of their responses and the voluntary nature of the 
NSHAPC along with other information required by the Privacy Act of 1974 
at the time of initial contact. As can be seen on the NSHAPC 
questionnaire cover sheets (Attachment A), a statement of 
confidentiality assurance is printed at the top of the form. Careful 
procedures are followed by the Bureau of the Census to assure privacy 
during the interview, and to protect the confidentiality of materials 
generated during the course of the interview. Every Bureau of the 
Census employee takes an oath and is subject to a jail sentence and a 
fine for improperly disclosing any information that would identify an 
individual or household. All field representatives are trained to 
interview respondents in private. All questionnaires associated with 
the NSHAPC national survey will be kept under secured conditions by the 
Bureau of the Census.
10. Justification for Sensitive Questions
    The NSHAPC 200(A) questionnaire has the following sensitive 
questions:
Section 9--Question 94
    Question 94 asks respondents how they get their food and where they 
eat. The field representatives will read the response categories to the 
respondent. One of the possible answers is ``trash cans''. When 
planning services to feed the homeless population, it is critical to 
understand where they get their food. We need to know the number of 
persons who eat from trash cans.
Section 10--Question 96
    Question 96 asks respondents about their medical condition. The 
field representatives will read the response categories to the 
respondent. Possible responses include ``test positive for ``HIV'', 
``have AIDS'', and ``use drugs intravenously''. There is increasing 
concern about the number of homeless persons with these conditions. 
Information about these, and other conditions, is essential when 
planning health care services for the homeless.
Section 11--Questions 119 c and d and 120 a-c
    These questions ask about parental neglect and abuse. A great deal 
of evidence suggest that parental neglect and abuse asked about in 
questions 120a-c is implicated in runaway behavior and youth 
homelessness. The answers to these questions will reveal the degree to 
which the present homeless population has these experiences in their 
background as potential contributing factors to their homelessness.
11. Cost
    The total estimated cost for Phase 1 of the national survey is 
$1,950,000. Cost for Phase 1, Steps 1 and 2 is $1,500,000. Cost to 
collect detailed program and service level data (Step 3) is $450,000. 
We compiled this estimate using individual estimates developed within 
each Census Bureau division involved in this survey. Estimates are 
based on the size of the sample and the length of the questionnaires. 
Administrative overheads, design, printing, and mailing costs are 
included.
    The total estimated cost for Phase 2 is $2,200,000. The only cost 
to the service providers and the service users (clients) is the time it 
takes to complete the questionnaire.
12. Estimate of Respondent Burden
    We estimate the average time to complete the NSHAPC-200A, Service 
User Questionnaire to be 45 minutes. These estimates are based on in-
house testing and out-house testing of the questionnaire by the Census 
Bureau. This is a total of 2,850 hours.
13. Reason for Change in Burden
    Not Applicable. This is a new survey. There are, therefore, 0 hours 
in the current OMB inventory.
14. Project Schedule
    Beginning on October 1, 1995, the Census Bureau plans on 
telephoning all service providers within sample areas to collect basic 
information about programs offered. After the phone calls are 
completed, the Census Bureau will mail the listings of service 
providers by sample area and the NSHAPC--L(2)L letter to providers 
contacted by telephone. A subsample of providers will also be asked to 
provide more detailed information about the services they offer. After 
conducting the CATI interviews, the Census Bureau will mail the 
appropriate questionnaires, NSHAPC Form 100B to 100L, to the providers 
in sample.
    Census Bureau personnel also will contact individuals from federal 
and state governments, agencies, organizations and knowledgeable local 
persons and ask them to review the lists of service providers. The 
Census Bureau will conduct these operations during October 1995 to 
January 1996.

B. Collection of Information Employing Statistical Methods

1. Universe and Respondent Selection
    The Census Bureau will conduct the national survey in 76 primary 
sampling areas. The Census Bureau will interview all service providers 
in the sample areas to collect basic information about the programs 
offered. This is a total of 25,000 interviews. The Census Bureau will 
select a subsample of providers within those areas and conduct detailed 
mail interviews for the programs and services offered by the provider. 
This is a total of 5,000 providers.
    Phase 1 of the survey will provide information on the types of 
programs and services available to homeless people. Phase 2 of the 
survey will provide estimates and detailed characteristics about 
homeless service users, including the literally homeless. Most research 
to date has been conducted in urban and suburban areas. For such areas, 
there is a growing consensus among researchers that a service-based 
survey design with sampling over time (vs one-time sampling) will give 
a good representation of the homeless population. For nonmetropolitan 
areas, the consensus is that an expansion of the types of service 
providers is needed to cover the homeless adequately. The Department of 
Agriculture asked us to increase the number of sample areas and the 
Census Bureau identified ways to design the survey to produce 
reasonably precise estimates of rural homelessness. However, it should 
be noted that the procedures for measuring rural homelessness will be 
less sophisticated than our procedures in urban areas. There is much to 
learn about rural areas and the NSHAPC is an excellent opportunity to 
collect information about rural homelessness. In the nonmetropolitan 
areas the sampling frame is the set of Community Assistance Program 
(CAP) ``Catchment Areas'', wherever they exist. CAP catchment areas are 
counties or local areas grouped together to receive 

[[Page 44559]]
funding and provide services to the needy and are served by a CAP 
agency. Our preliminary research indicates that CAP agencies are a good 
source for lists of services in the nonmetropolitan areas they cover. 
In a few nonmetropolitan areas where CAPs do not exist, the sampling 
frame is the set of counties or groups of counties.
2. Procedures for Collecting Information

Sampled Service Providers

    The Census Bureau will conduct the survey in 76 sample areas; this 
is the first stage of sampling. Within each sample area, a 
comprehensive list of service providers will be developed. All 
providers will furnish basic, core information on programs offered. 
Phase 1 also includes a second stage of sampling where a subset of 
service providers will be selected within each sample area to be asked 
more detailed information about their programs and services.

Sample of Clients (Service Users)

    In Phase 2, a sample of clients will be selected for interviewing. 
To facilitate the sampling, we are asking providers to complete Form 
NSHAPC **, Roster for Provider Facility. This form will help ensure all 
clients at the housing programs are listed. This is a three-stage 
sample, where the first-stage sample corresponds to the same 76 
geographic areas discussed above for the provider-interview sample. In 
the second stage, a sample of providers will be selected in each sample 
area but only in designated programs. In the third stage, a sample of 
the clients at each of the sample provider facilities will be selected.

Estimation

    In Phase 1, the estimates needed for proportions of providers 
falling in different categories.
    The estimates needed from Phase 2 consist of proportions of clients 
falling in different categories. The base for these proportions can be 
derived in two ways:
    a. Weighted estimates of the average number of persons using 
services on any given day in February;
    b. Weighted estimates of the total number of persons using services 
at any time during February.
    Other estimates can be derived from these. For example, the weights 
applied to obtain estimates (a) or (b) could be used for estimates only 
of those service-using persons who are homeless according to different 
definitions of homelessness. For the national survey, it is likely that 
we will give a range of estimates, corresponding to different 
assumptions about coverage and multiplicity biases.
    The weights for (a) will be standard survey weights based on the 
selection probability, with adjustments for nonresponse. There will be 
a ``multiplicity'' adjustment to reduce the relative weight of people 
who have more than one chance of selection because they use more than 
one type of program, for example, both shelters and soup kitchens, as 
determined from the questionnaire.
    For (b) we are considering three estimation methods. One purpose of 
the pretest was to get information to evaluate these methods.
    Method 1: The weight will be proportional to the number of 
consecutive days prior to the interview (up to 28 days) that the person 
did not use a shelter (for the shelter sample) or soup kitchen (for the 
soup kitchen sample), and likewise for other types of programs. For 
example, a person who says this is their first night in any shelter in 
the last 28 days will be given a weight 28 times the typical weight of 
a person who was in a shelter the night before. (Intuitively, the 
method assumes that for every person we find who is just entering 
homelessness, there are 27 others whom we miss because we did not 
happen to interview them on their first day.) There is a precise 
mathematical justification for the method as giving an unbiased 
estimate of the total number of service users during 28-day periods 
centered around February, making some assumptions that overall patterns 
of service use are fairly constant throughout the month.
    This is intended to be our primary method. The potential drawback 
of this method would be if the pretest finds too many people who are 
just starting to use services after a long absence, resulting in too 
many large weights. Limited research from 1990 census evaluation 
projects suggests that this should not be a problem. However, if this 
turns out to be a problem we would either use the Method 2 or use 
Method 1 with a 7-day ``window'' instead of a 28-day ``window''.
    Method 2: The weight will be inversely proportional to the number 
of days in the last week the client used a shelter (for the shelter 
sample) or soup kitchen (for the soup kitchen sample), and likewise for 
other types of programs. This is the procedure used in the 1987 Urban 
Institute study. We will ask this question for comparability with that 
survey. This approach has two disadvantages. First, even if the 
questions are answered accurately, the method has a mathematical bias 
unless each person has the same pattern of service use each week. 
Second, it is not reasonable to ask a person for his/her average 
shelter use for an entire month, so the method cannot give direct 
estimates for the total number using services during a period longer 
than a week.
    Method 3: Capture-recapture. We are not using capture-recapture 
estimation. It would require selecting the sample independently each 
day, so that there would be a chance that a person or small shelter 
might come into sample numerous times.
    The Urban Institute and the Census Bureau developed the survey 
design. As part of Joint Statistical Agreements between the Urban 
Institute and the Census Bureau, the following operational papers were 
developed. Each are available from the Census Bureau of request.

Joint Statistical Agreement 91-30

--Developing a Provider List--November 27, 1991
--Methodological Issues and Options--November 27, 1991
--Options for Evaluating Coverage in Urban Areas--December 10, 1991
--Ranking of Data Items by Federal Agencies--December 10, 1991

Joint Statistical Agreement 92-01

--Draft Questionnaire and Agency Data Needs--March 26, 1992
--Developing Provider Lists for a National Homeless Survey--March 26, 
1992
--Proposed Methodology for a National Homeless Survey--March 26, 1992
--Questions for Unduplicating and for Estimating a Month-Long Point 
Prevalence and Annual Prevalence--March 26, 1992
--Developing Estimates of the Number of Service Providers in Different 
Strata--April 10, 1992
--Options for Evaluating Survey Coverage in Urban Areas, and 
Preliminary
--Information on Rural Areas--April 10, 1992

Joint Statistical Agreement 92-04

--Mechanics of List Development and Additional Field and Survey 
Procedures--August 14, 1992
--Estimates of Service Providers and Users in Non-MSA Areas, and 
Options for
--Evaluating Survey Coverage in These Areas--August 4, 1992
3. Method to Maximize Response
a. Survey Frame for Client Interviews
    New research indicates the greatest improvement in coverage of the 
homeless population is through 

[[Page 44560]]
sampling this population over time. (e.q., soup kitchens and shelters) 
and outreach programs during a four-week period. The NSHAPC survey 
design uses a service-based methodology. A ``service user'' is anyone 
who uses generic services or shelters, soup kitchens, or other services 
for the homelsss. The survey frame will include shelters, soup 
kitchens, outreach programs, and possibly other programs. A ``non-
service user'' is anyone who does not use any of these services.
    According to the 1987 Urban Institute study, the shelter frame 
covers homeless people who use shelters, which may be 35 to 40 percent 
of the homeless on any given night, and about 50 percent over the 
course of a week. If conducted on a one-night basis, the shelters' 
sampling frame taken by itself will miss many homeless who use shelters 
infrequently, homeless service users who do not use shelters but do use 
soup kitchens and other services, and homeless people who do not use 
any services. If data collection involves repeated samples from the 
same shelters over the course of a week or a month, a considerably 
higher proportion of the homeless (perhaps as high as 70 percent) is 
likely to be captured through a methodology based on shelters.
    The soup kitchen sampling frame, taken by itself over the course of 
a week, will capture a proportion of very poor people residing in 
conventional dwellings who may turn out to be at imminent risk of 
homelessness. According to the 1987 Urban Institute study, 43 percent 
of soup kitchen users are not literally homeless. When shelter and soup 
kitchen frames are combined during the course of a week, the shelter 
and soup kitchen frames will probably cover about 70 percent of the 
literally homeless and a small but unknown proportion of the service-
using at-risk population. When data collection covers a month (as 
planned for the national survey), the coverage will be even greater--
perhaps as high as 85-90 percent of the literally homeless.
    In many cities, the array of services for the homeless include one 
or more outreach programs. These programs may be operated by a shelter, 
soup kitchen, drop-in center, health care center, neighborhood center, 
or other service facility. Their target population is homeless people 
who do not routinely use shelters or soup kitchens. The outreach 
programs typically distribute food, and sometimes blankets or warm 
clothing. Outreach teams typically follow a route that covers the known 
locations frequented by homeless street people, or where homeless 
street people assemble at the time they know the ``food wagon'' will 
come by. Including outreach programs in a design as a sampling frame 
allows one to maintain the control and efficiency associated with 
sampling service programs and their users, while still reaching the 
``reachable'' proportion of the street homeless population. Outreach 
programs are probably the best single source of information about the 
hidden street population and the most cost effective opportunity to 
make contact with the street population. Additional enumeration of 
street locations and encampments yields little overall coverage 
improvement when shelters, soup kitchens, and outreach programs are 
interviewed over time.
    The NSHAPC is designed to cover as much of the literally homeless 
population as possible and still meet the cost considerations of the 
sponsors. From previous research, it appears that up to 90 percent 
coverage of the literally homeless population is achievable with the 
shelter/soup kitchen/outreach programs methodology conducted during a 
winter month. This service-based methodology will be considerably 
cheaper and easier than implementing a street enumeration to attempt to 
get the last 10 percent. In addition, even if the resources were 
committed to achieve full coverage, there is no guarantee we would get 
the last 10 percent.
b. Incentives to Participate in the Survey
    Private university researchers, usually with funding from federal 
grants, have conducted past homeless surveys. In the past, researchers 
have paid respondents to participate in a survey, usually about $20. 
The NSHAPC survey will impose an extra burden on the service providers 
who are asked to participate in the survey since they will: participate 
in pre-contact meeting(s) with Census Bureau regional office staff; 
provide space at their facility for the Census Bureau's field 
representatives to interview sample persons on scheduled days and at 
scheduled times; and administer cash payments to the survey 
respondents. The NSHAPC survey also will impose an extra burden on the 
selected sample of homeless persons because they will be asked to 
remain at the service provider's facility for an interview that may 
take 45 minutes and respond to personal questions. Given these 
circumstances, we feel it is appropriate to offer a monetary incentive 
of $200 to each service provider and $10 to each respondent to 
guarantee their cooperation in the survey.
    While there is no research specifically on the effects of paying 
the homeless, there is a strong research basis for the use of monetary 
incentives to increase the cooperation of economically disadvantaged 
populations. Two studies using random assignment have carefully 
examined the impact of incentives on survey cooperation.
    The first study, by Stuart H. Kerachsky and Charles D. Mallor 
(1981), examined the use of incentives in surveys of Job Corps 
participants and a comparison group. Five thousand eight hundred people 
participated in the study. The survey population consisted of 
economically disadvantaged youths aged 16-21 at the beginning of the 
study. (The survey respondents were interviewed 3 times over 18 
months). Survey respondents were offered either no incentive or a $5 
payment for their participation in the 30 minute survey. (The 1991 
equivalent value of the incentive payment is approximately $15.)
    The impact of the monetary incentives was determined by comparing 
the survey response rates and other outcomes for the experimental group 
(the $5 incentive group) to those for the control group (the $0 
incentive group). The most notable findings from this survey on the 
effect of respondent payments are:
     Response rates increased by offering a monetary incentive. 
[More people were located (10 percent) and completed the survey (5 
percent) when an incentive was offered.]
     Item nonresponse rates decreased. (Fewer ``Don't Know'' 
responses.)
     The cost per completed interview was smaller for the group 
that was offered an inventive.
    The second study, by the Educational testing Service (1991), 
examined the use of monetary incentives in the pilot test of the 
National Adult Literacy Survey. The sample population of 2,000 included 
a nationally representative sample of adults aged 16 and older living 
in households. The sample persons completed a 15 minute background 
questionnaire and a timed 45 minute test of literacy skills. The 
respondents received a monetary incentive of $0, $20, or $35 for 
participating in the survey. The impact was of the monetary incentives 
was determined by comparing the survey response rates and other 
outcomes for the experimental groups (the $20 and $35 incentive groups) 
to those for the control group (the $0) incentive group). The most 
notable findings from this survey on the effect of respondent payments 
are:
     Response rates for economically disadvantaged, minority, 
and high school dropout populations are 

[[Page 44561]]
significantly improved by offering monetary incentives.
     The use of monetary incentives reduced item nonresponse 
and data collection costs.
     Many other studies have been done and articles written 
documenting the effect of monetary incentives on response rates.
     A study by Miller, Kennedy, and Bryant (1972) of the 1971 
Health and Nutrition Examination Survey showed that offering a monetary 
incentive increased the response rate from 70 percent to 82 percent.
     A study by Chromy and Horvitz (1978) suggests that 
response rates were found to be unacceptably low when no monetary 
incentive was used. However, the participation rate increased from 70 
to 85 percent with the use of monetary incentives.
     A study by Berk, Mathiowetz, Ward, and White (1988) 
discusses how monetary incentives improved the response rates of 
adults.
    During 1991 and 1992, the University of Michigan Survey Research 
Center, examined the effects of monetary incentives on the willingness 
of youth to participate in the Youth Risk Behavior Surveillance System 
(YRBS) interview and on their motivation to answer YRBS questions as 
accurately and truthfully as possible. The study involved focus groups 
with about 6 to 8 teenagers (ages 12-19) in each group. The focus 
groups included teenagers from a range of ages, racial, and ethnic 
backgrounds and both sexes. In order to assess the impact of monetary 
incentives on respondent participation and the motivation group, 
interviews with both the youth and their parents occurred. A split 
sample experiment was conducted during the pretest interviews in order 
to more formally assess the effect of monetary incentives on respondent 
participation. The most notable findings from the YRBS on the effect of 
respondent payments are:
     Youth who are aware that they will be paid for completing 
an interview are more likely to agree to participate (the cooperation 
rate increased from 79 percent to 90 percent because of the respondent 
being paid for participating in the survey).

    Note: The youth group participants stated that monetary 
compensation (the youth received $20 for participating in the study) 
was important to their keeping their appointments to participate in 
the study.

     Youth feel that monetary compensation increases the 
seriousness with which they approach the task of answering questions 
and increases the accuracy and truthfulness of their responses. This 
point is particularly relevant, given the personal nature of the NSHAPC 
questionnaire (i.e., drug and alcohol use and mental health status) and 
the fact that the NSHAPC questionnaire will be administered at the 
service provider facilities.
    The first two studies show that the response rates for economically 
disadvantaged populations, which include homeless persons who use 
services, are significantly improved by offering monetary incentives. 
While the University of Michigan survey only dealt with the effects of 
monetary incentives on youth, the results not only show that youth 
respondents are more willing to cooperate when they receive payment but 
that the parents of the youth also feel that payment is beneficial in 
obtaining the respondents' participation. The results from this survey 
are noteworthy since the respondents for the NSHAPC will include both 
youth and adults.
    No surveys have been conducted with homeless persons to actually 
compare the response rates of homeless persons who receive a monetary 
incentive for participation to those homeless persons who do not 
receive a monetary incentive for participation. However, there have 
been numerous studies conducted dealing with the homeless population, 
in which respondents were paid.
    In a paper presented at the Fannie Mae Annual Housing conference in 
Washington, DC on May 14, 1991, Dr. Michael Dennis of the Research 
Triangle Institute presented a chronological summary of ten relevant 
studies on homelessness completed since 1983. (See Attachment D for a 
list of these studies.) In all ten studies, the respondents received 
payment for participating in the study. In February 1991, the Research 
Triangle Institute conducted the Washington, DC Metropolitan Area Drug 
Study (DC*MADS) and paid participants $10 along with offering them 
coffee, juices, Pop Tarts, and/or toothbrushes for taking the time to 
participate in the survey. The Research Triangle Institute also gave a 
$35 food donation to the service providers each morning they sampled at 
the provider's facility. In October 1991, the Wilder Foundation 
completed a statewide enumeration of homeless persons in Minnesota. 
Respondents received a $5 cash payment for the half-hour interview.
    These past practices of paying respondents has direct implications 
on the NSHAPC survey design and on response rates of the NSHAPC. The 
success of the survey is dependent upon the cooperation of the service 
providers and respondents.
(1) Cooperation of Service Providers
    Most service providers require (or prefer) respondents to be 
compensated for their participation in the survey. Paying the service 
providers is also critical to guarantee their cooperation. The 
cooperation of the service providers is essential for the following 
reasons:
    (a) Providers determine if the voluntary survey will be conducted 
at the facility. They also determine logistical arrangements for 
conducting the interview.
    (b) Providers must agree to allow respondents to remain at the 
facility (e.g., after eating) to be interviewed. Normally, persons are 
required to immediately leave the site once services are provided.
    (c) Providers often have significant influence with homeless 
persons seeking their services.
(2) Respondent Cooperation
    The survey design of the NSHAPC requires sampling persons at the 
facility. Paying respondents is critical to ensure that designated 
sample persons remain at the facility to be interviewed once they have 
used the services offered. Without payment, there is little incentive 
for respondents to remain on site for an interview that may take 45 
minutes and asks personal questions, such as drug and alcohol use, 
mental health status, living conditions, victimizations, and 
imprisonment.
    In our consultations with outside experts in this field, all 
persons indicated that paying respondents to participate in the survey 
was critical to achieving acceptable response rates. All experts agree 
that we should expect high nonresponse rates if respondents are not 
compensated for their participation.
    To ensure the cooperation of the service providers and the 
respondents, we recommend that a Memorandum of Understanding (see 
Attachment E) be entered into by the U.S. Bureau of the Census and the 
service facility. Under this agreement, the Census Bureau will 
compensate the service providers for their help. For example, the 
Census Bureau will ask the service provider to:
     Participate in pre-contact meeting(s) with Census Bureau 
regional office staff to make logistical arrangements to conduct the 
survey.
     Make space available at the facility to interview sample 
persons.
     Agree to allow the field representatives to conduct 
interviews on scheduled days and at scheduled times 

[[Page 44562]]
according to the statistical sampling schemes designed for the NSHAPC.
     Administer cash payments of $10 to survey respondents. 
Administering cash payments this way alleviates safety concerns about 
placing the field representatives and survey respondents at risk of 
crime.
    We believe that the studies summarized here make a strong case for 
the use of monetary incentives to guarantee the cooperation of the 
service providers and the respondents.
4. Contacts for Statistical Aspects and Data Collection
    The following individuals are being consulted on statistical 
aspects of the survey design:

Dr. Martha Burt, The Urban Institute, 2100 M Street, NW., 
Washington, DC 20037, Tel: (202) 857-8551
Dr. Michael Dennnis, Research Triangle Institute, Center for Social 
Research and Policy Analysis, PO Box 12194, Research Triangle Park, 
NC 27709-2194, Tel: (919) 541-6429
Dr. Charles H. Alexander, Demographic Statistical Methods Division, 
Bureau of the Census, Washington, DC 20233, (301) 457-4290

    The Census Bureau will collect the data for this survey. Mr. Steven 
Tourkin is responsible for the collection of all data and is the Census 
Bureau contact person for the survey.

Mr. Steven C. Tourkin, Demographic Surveys Division, Bureau of the 
Census, Washington, DC 20233, (301) 457-3791

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[FR Doc. 95-21111 Filed 8-25-95; 8:45 am]
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