Runaway and Homeless Youth Program Proposed Priorities for Fiscal Year 1994

DEPARTMENT OF HEALTH AND HUMAN SERVICES

Runaway and Homeless Youth Program Proposed Priorities for Fiscal

Year 1994

AGENCY: Administration on Children, Youth and Families (ACYF),

Administration for Children and Families (ACF), HHS.

ACTION: Notice of proposed fiscal year 1994 runaway and homeless youth

program priorities for the administration for children and families.

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SUMMARY: The Runaway and Homeless Youth Act requires the Secretary to

publish annually, for public comment, a proposed plan specifying

priorities the Department will follow in awarding grants and contracts

under the Act. The final priorities selected will take into

consideration the comments an recommendations received from the public

in response to this notice.

The public, particularly those knowledgeable about and experienced

in providing services to runaway and homeless youth, are urged to

respond. The actual solicitations for grant applications will be

published at later dates in the Federal Register. No proposals, concept

papers or other forms of application should be submitted at this time.

DATES: To be considered, comments must be received no later than March

14, 1994.

ADDRESSES: Please address comments to: Olivia A. Golden, Commissioner,

Administration on Children, Youth and Families. Attention: Family and

Youth Services Bureau, P.O. Box 1182, Washington, DC 20013.

SUPPLEMENTARY INFORMATION:

I. Organization, Mission and Goals of the Family and Youth Services

Bureau

The Family and Youth Services Bureau (FYSB) is a component of the

Administration on Children, Youth and Families (ACYF) in the

Administration for Children and Families (ACF). The Bureau administers

five Federal programs dealing with children, youth and families:

(1) The Runaway and Homeless Youth (Basic Center) Program (RHYP),

(2) The Transitional Living Program for Homeless Youth (TLP),

(3) The Drug Abuse Prevention Program for Runaway and Homeless Youth

(DAPP),

(4) The Youth Gang Drug Prevention Program (YGDPP), and

(5) The Family Resource and Support Program (FRSP).

The mission of FYSB is to provide national leadership on youth

issues and to empower individuals and organizations to provide

effective, comprehensive services for at-risk youth and their families,

ensuring the safety and maximizing the stability and long-term self-

sufficiency of the youth.

Two of the FYSB programs listed above, the Runaway and Homeless

Youth (Basic Center) Program and the Transitional Living Program for

Homeless Youth, are authorized under the Runaway and Homeless Youth Act

(Title III of the Juvenile Justice and Delinquency Prevention Act of

1974, as amended, hereinafter cited as ``the Act'') and are the subject

of the priorities proposed in this notice.

The Act specifically authorizes the Secretary to make grants to

entities that establish and operate local runaway and homeless youth

centers (Basic Centers) to address the immediate needs of at-risk

youth. Currently, 348 such projects are being funded. The Act also

authorizes activities that support the local centers, and that increase

knowledge about the conditions of runaway and homeless youth and their

families.

The Act further authorizes the Secretary to make grants to entities

that establish and operate Transitional Living projects for homeless

youth to enable the youth to become self-sufficient and to avoid long-

term dependency on social services. Currently, 73 such projects are

being funded.

The Act also authorizes financial support for:

A National Communications System (NCS, a toll-free 25-hour

runaway hotline) which serves as a neutral channel of communication

between at-risk youth and their families and as a source of referral to

needed services;

Grants to statewide and regional non-profit organizations

for the provision of Training and Technical Assistance (T&TA) to

agencies and organizations eligible to establish and operate runaway

and homeless youth centers; and

Grants to conduct research, demonstration, and evaluation

projects.

Annual Program Priorities. Sections 384(a) and 384(b) of the Act

instruct the Secretary to develop for each fiscal year, and to publish

annually in the Federal Register for public comment, a proposed plan

specifying the priorities the Department will follow in making grants

under the Basic Center and the Transitional Living Programs. The

Secretary is further instructed to take into consideration the comments

received in developing and publishing the subsequent plan specifying

the final fiscal year priorities. This notice constitutes the

Department's proposed priorities in these two program areas for fiscal

year (FY) 1994.

No acknowledgement will be made of the comments received in

response to this notice, but all comments received by the deadline will

be considered in preparing the runaway and homeless youth final

priorities. Final priorities will be published in the Federal Register

at the time of solicitation of grant applications.

One program announcement soliciting applications for both Basic

Center Program grants and Transitional Living Program grants will

appear in the Federal Register as in previous years. Because all

current grants to carry out training and technical assistance (T&TA)

activities will expire this fiscal year, the announcement will also

request proposals to provide T&TA to staff of FYSB-funded projects.

Finally, the announcement will solicit grant proposals to analyze and

interpret the considerable data that are being produced by the Runaway

and Homeless Youth Management Information System, the Runaway and

Homeless Youth Monitoring System, a number of Runaway and Homeless

Youth Evaluation Studies, and recent Research and Demonstration

projects. Copies of the announcement will be sent to all persons who

comment on these proposed priorities.

The current grant to manage the National Communication System also

expires this fiscal year. A separate Federal Register announcement will

be published soliciting applications to manage the National

Communications System.

II. Priorities for Ongoing Direct Service Programs

A. Priorities for Basic Centers

Approximately 350 Basic Center grants, of which about two-thirds

will be non-competitive continuations and about one-third competitive

new starts, will be funded in FY 1994 to support organizations which

provide services to fulfill the four major goals of the Runaway and

Homeless Youth Program (RHYP): alleviating the problems of runaway and

homeless youth; reuniting youth with their families; strengthening

family relationships; and helping youth decide upon a future course of

action.

The goals of the RHYP are achieved through the Basic Centers, which

provide services in support of the immediate needs (temporary shelter,

food, clothing, counseling, and related services) of runaway or

homeless youth and their families in a manner which is outside the law

enforcement system, the child welfare system, the mental health system,

and the juvenile justice system. Further, the Basic Centers provide

services, directly and through referrals, to promote the long-term

stability and safety of such youth.

Funds for Basic Center grants are allotted annually among the

States and other qualifying jurisdictions on the basis of their

relative populations of individuals who are less than 18 years of age.

For the past several years, Basic Center grants have been awarded for

three-year project periods. Approximately one-third of the Basic Center

grants expire each year, requiring these agencies to compete for new

awards. The remaining two-thirds of the Basic Center grants receive

non-competitive continuation awards. Within any given State, in

consequence, individual grantees may fall within any one of three

different funding cycles: new starts, second-year continuations, and

third-year continuations. In FY 1994, this cyclical funding pattern

will be continued, assuming satisfactory performance on the part of

current grantees and the availability of funds. Thus, approximately

two-thirds of the current grantees will be awarded noncompetitive

continuation funds, and the remaining grantees (those whose grant

periods expire in FY 1994) will have the opportunity to submit new

competitive applications. All other eligible youth-serving agencies not

holding current awards may also apply for these new competitive funds.

Section 385(a)(2) of the Act requires that not less than 90 percent

of the funds appropriated under Part A (The Runaway and Homeless Youth

Grant Act) be used to establish and strengthen runaway and homeless

youth Basic Centers. Total funding under Part A of the Act for FY 1994

is expected to be approximately $36.1 million. Approximately $32.5

million will be allocated to the Basic Centers.

An announcement of the availability of funds for the Basic Centers,

along with the instructions and forms needed to prepare and submit

applications, will be published in a Federal Register announcement as

early as possible in calendar year 1994 after the comment period ends.

B. Priorities for Transitional Living Grants

Part B, Section 321 of the Runaway and Homeless Youth Act, as

amended, authorizes grants to establish and operate Transitional Living

projects for homeless youth. This program is structured to help older

homeless youth achieve self-sufficiency and avoid long-term dependency

on social services. Transitional Living projects provide shelter,

skills training, and support services to homeless youth ages 16 through

21 for a continuous period not exceeding 18 months.

The first 45 Transitional Living Program (TLP) grants were added in

September 1990 for three-year project periods. An additional 32 grants

were awarded in FY 1991 and 10 grants in FY 1992, also for three-year

project periods. All funds available under this program in FY 1993 were

awarded in the form of non-competitive continuation awards to then-

ongoing grantees.

In order to award new TLP grants as early as possible in FY 1994,

however, an open competition was held in the summer of calendar year

1993 for new awards to be supported with FY 1994 funds. Project periods

of the new grants were to begin on October 1, 1994, or as soon

thereafter as funds were available. This was to allow grantees with

project periods ending in September 1994 to compete for new grants and

to continue their existing projects with minimal disruption of services

if they were successful in the competition.

Thirty-two new TLP grants were awarded following the competition,

with starting dates on or after October 1, 1993 (the first day of FY

1994). First-year funding for these projects totaled approximately $6.0

million. It is anticipated that remaining FY 1994 TLP funds will be

awarded to continuation grantees initially funded in earlier years.

Inasmuch as funds for additional new-start TLP grants will probably

be available in FY 1995, an open competition will be held in the summer

of calendar year 1994 for new awards to be supported with FY 1995

funds. Project periods of these new awards will begin no sooner than

October 1, 1994. It is anticipated that approximately $6.0 million will

be available for these new grants in FY 1995.

C. Priorities for the National Communications System

Part C, Section 331 of the Runaway and Homeless Youth Act, as

amended, mandates support for a National Communications System to

assist runaway and homeless youth in communicating with their families

and with service providers. In FY 1991, a three-year grant was awarded

to the National Runaway Switchboard, Inc., in Chicago, Illinois, to

operate the system. This grant will expire in February 1994. An

announcement soliciting competing grant applications to operate the

system for five years will be published in the Federal Register late in

1993 or early in 1994. Priority will be given to applicants having

experience in providing telephone services to runaway and homeless

youth. It is anticipated that $826,900 in first-year funds will be

awarded to the grantee in FY 1994.

III. Support Services for Runaway and Homeless Youth Programs

A. Training and Technical Assistance

Part D, Section 342 of the Act authorizes the Department to make

grants to statewide and regional nonprofit organizations to provide

training and technical assistance (T&TA) to organizations that are

eligible to receive service grants under the Act. Organizations

eligible to receive this T&TA include the Basic Centers authorized

under Part A of the Act and the Transitional Living grantees authorized

under Part B. In addition, Section 3511 of the Anti-Drug Abuse Act of

1988, which authorized the Drug Abuse Prevention Program for Runaway

and Homeless Youth (DAPP), authorizes support for T&TA to runaway and

homeless youth service providers. The purpose of this T&TA is to

strengthen the programs and to enhance the knowledge and skills of

youth service workers.

In FY 1991, the Family and Youth Services Bureau awarded ten

Cooperative Agreements, one in each of the ten Federal Regions, to

provide T&TA to agencies funded under the three Federal programs for

runaway and homeless youth (the Basic Center Program, the Transitional

Living Program, and the Drug Abuse Prevention Program). Each

Cooperative Agreement was unique, being based on the characteristics

and different T&TA needs in the respective Regions. Each of the

Cooperative Agreements had a three-year project period that will expire

in FY 1994.

An announcement of the availability of funds for cooperative

agreements to provide T&TA to eligible grantees, along with

instructions and forms needed to prepare and submit applications, will

be published in the Federal Register early in 1994. Earlier cooperative

agreements allowed support for networking and membership efforts. We

are proposing that these activities not be continued under the new

agreements. Instead, we are proposing that the agreements provide for

T&TA focused on findings resulting from the monitoring of runaway and

homeless youth grantees. Grantee project periods will be for five

years, and approximately $1.5 million in first-year funds will be

available in FY 1994.

B. National Clearinghouse on Runaway and Homeless Youth

In June 1992, a five-year contract was awarded by the Department to

establish and operate the National Clearinghouse on Runaway and

Homeless Youth. The purpose of the Clearinghouse is to serve as a

central information point for professionals and agencies involved in

the development and implementation of services to runaway and homeless

youth. To this end, the Clearinghouse:

(1) Collects, evaluates and maintains reports, materials and

other products regarding the provision of services to runaway and

homeless youth:

(2) Develops and disseminates reports and bibliographies useful

to the field;

(3) Identifies areas in which new or additional reports,

materials and products are needed; and

(4) Carries out other activities designed to provide the field

with the information needed to improve services to runaway and

homeless youth.

It is anticipated that non-competitive continuation funding will be

awarded to sustain the Clearinghouse in FY 1994.

C. Management Information System (MIS) Implementation

In FY 1992, a five-year contract was awarded to implement the

Runaway and Homeless Youth Management Information System (MIS) across

three FYSB programs: the Runaway and Homeless Youth Basic Center

Program, the Transitional Living Program, and the Drug Abuse Prevention

Program. The MIS data elements include identification of the program in

which the youth is enrolled, a profile on each youth served

(demographics, presenting problems, services received), and an agency

profile (agency description, program information, staff profile, and

related information). Participation in the MIS is mandatory.

In FY 1993, using an existing computer-based, information gathering

protocol, the contractor began providing training and technical

assistance to grantees in the use of the MIS. The system will become

fully operational by the end of FY 1994. The data generated by the

system will be used to produce reports and information regarding the

programs, including information for the required reports to Congress on

each of the three programs. The MIS is also designed to serve as a

management tool for FYSB and for the individual programs.

It is anticipated that continuation funding for the MIS will be

provided in FY 1994.

D. Monitoring Support for FYSB Programs

In FY 1992, FYSB awarded a contract for initial development of a

comprehensive monitoring instrument and set of site visit protocols,

including a peer-review component, for the Runaway and Homeless Youth

Basic Center Program, the Transitional Living Program, and the Drug

Abuse Prevention Program. Pilot testing of the instrument and related

protocols began in FY 1993. Also in FY 1993 an expanded contract was

awarded to provide nationwide logistical support for the peer review

monitoring process. The projected nationwide use of the new instrument

and peer review process will improve Federal oversight of the programs

and will identify program strengths and weaknesses. The findings will

also be used to direct T&TA activities and FYSB policy development.

It is anticipated that continuation funding for the logistical

contractor will be provided in FY 1994.

IV. Research and Demonstration Initiatives

Section 343 of the Act authorizes the Department to make grants to

States, localities, and private entities to carry out research,

demonstration, and service projects designed to increase knowledge

concerning and to improve services for runaway and homeless youth.

These activities are important in order to identify emerging issues and

to develop and test models which address such issues.

A. Services for Youth in Rural Areas

Because of geographic distances, low population density and, in

some cases, cultural differences, it is difficult to provide effective

services to runaway and homeless youth in rural areas. In many such

areas, scarcity of funds and other resources precludes the funding of

separate, autonomous Basic Center programs.

There is a need for innovative and effective models for the

provision of runaway and homeless youth services in rural areas,

including Indian reservations. These models would make services

accessible to youth without setting up inordinately expensive service

agencies in low populated areas.

In FY 1993, first-year funding was awarded to eight grantees to

develop such models. These grants are expected to produce written

descriptions of the proposed service models, identify issues related to

model implementation, and generate information on youth and program

outcomes. The models will also incorporate formal collaboration with

other major youth-serving agencies in the areas served.

It is anticipated that continuation funding of these eight grants

will be provided in FY 1994.

B. Analysis, Synthesis, and Interpretation of Information Concerning

Runaway and Homeless Youth Programs

Over the past few years, systems for the accumulation of new

knowledge have been developed regarding the delivery of services to

runaway and homeless youth and their families through programs

administered by FYSB. These systems currently provide, or during FY

1994 will provide, new data of considerable interest. The four main

sources of this new information are:

1. The Management Information System (MIS)

The information now being collected by the MIS includes

descriptions of FYSB's grantee agencies and detailed data on the youth

and families served, including demographic profiles, presenting

problems, services provided, and service outcomes.

2. The Monitoring System

Data now being collected through the monitoring system will

identify program strengths and weaknesses in such areas as outreach and

intake; provision of appropriate shelter, food, clothing, and

counseling; making of referrals, as needed, for health care,

employment, and educational services; family reunification and

aftercare; and program administration.

3. Evaluation Studies of FYSB Programs

Current studies nearing completion include:

``Evaluation of Runaway and Homeless Youth Programs--A

Follow-Up Study'' (FY 1991-present);

``Incidence and Prevalence of Drug Abuse Among Runaway and

Homeless Youth'' (FY 1990-present);

``Evaluation of the Transitional Living Program for

Homeless Youth'' (FY 1991-present);

``Study of the Underlying Causes of Youth Homelessness''

(1989-present); and

``National Evaluation of Home-Based Services Programs'' (FY

1992-present).

4. Research and Demonstration (R&D) Studies Supported by FYSB

Priority areas in which FYSB has recently sponsored Research and

Demonstration Studies include:

``Home-Based Services: an Alternative to Out-of-Home

Shelter'';

``Transitional Living/Independent Living Collaboration'';

``Cooperation Between Law Enforcement Agencies and Runaway

and Homeless Youth Centers'';

``Prevention and Treatment of Alcohol Abuse Among Native

American Youth in Runaway and Homeless Youth Centers'';

``Improving Minority Participation in Runaway and Homeless

Youth Centers''; and

``Developing an Urban Strategy for the Prevention of Youth

Suicide.''

There is need for analysis, synthesis, and interpretation of this

new information, leading to the identification of issues and trends in

regard to both the client population served and the services being

provided.

This information will be used to initiate a dialogue with the field

around current program requirements, practices, and concerns, and to

identify needed changes in the manner in which FYSB programs are funded

and implemented. For example, directors of FYSB grantee agencies and

Federal officials have raised a number of program and management issues

that an analysis, synthesis and interpretation of the emerging data

will help clarify and prioritize. These issues include youth

eligibility for FYSB's Runaway and Homeless Youth programs, fees for

services, consolidation of Runaway and Homeless Youth programs,

availability of physical and mental health care for runaway and

homeless youth, and State and local laws affecting runaway and homeless

youth programs.

Readers are invited to suggest other areas in which program

guidance is needed.

An announcement of the availability of grant funds for these

purposes, along with needed forms and instructions, will be published

in the Federal Register as early in 1994 as possible after the comment

period ends.

IV. Evaluation Studies

Continuation funding will be awarded to two ongoing evaluation

studies:

``Evaluation of the transitional Living Program for

Homeless Youth`` (FY 1991--present). In addition to describing the

number and characteristics of youth served by the grantees and the

types of services provided, this study is examining the

effectiveness of the program in alleviating the immediate problems

of the youth, in preparing the youth for self-sufficiency through

education and work, and in strengthening family relationships.

``Development of Manuals for ACYF to Use in Evaluating

Demonstration Projects'' (FY 1993--present). This project is

developing general and specific manuals to assist ACYF grantees in

the design and implementation of their internal program evaluations.

One of the specific manuals will be designed for FYSB grantees.

(Catalogue of Federal Domestic Assistance, Program Number 93.623,

Runaway and Homeless Youth Program, and Program Number 93.550,

Transitional Living Program for Homeless Youth.)

Dated: January 3, 1994.

Olivia A. Golden,

Commissioner, Administration on Children, Youth and Families.

[FR Doc. 94-1857 Filed 1-27-94; 8:45 am]

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