Report: Domestic violence survivors struggle to leave shelter system due to lack of permanent supportive housing

Between 2018 and 2023, more than half of domestic violence victims in the Human Resources Administration’s domestic violence emergency shelter left for another shelter, rather than permanent housing, according to a new report by New Destiny Housing.

The report also confirms that domestic violence is still the leading cause of homelessness, a fact that was first reported in the New York City Comptroller’s 2019 Housing Survivors report.

“What we hope others take away from this report is the limited access domestic violence survivors have had to housing in this city, and as a result of that (they) are being shuffled from shelter to shelter, instead of moving from shelter to housing,” said Nicole Branca, executive director of New Destiny Housing. 

The report collects data from the city’s Department of Social Services/Human Resources Administration annual report along with qualitative data from 24 nonprofit organizations across New York City. It shows that less than 9% of victims left emergency shelters for permanent housing, due in large part to soaring housing costs. With limited options, it is likely that many survivors return to their abuser, according to the report.

For survivors of domestic violence, the shelter stay process can be quite lengthy and involved. Survivors are only allowed to stay in emergency shelters for a maximum of 90 days. Once they have been in a shelter for six months, they can no longer stay and must live in a transitional emergency shelter, which is subject to availability. Their only other option is to apply for and move to a Department of Homeless Services shelter.

“It can be incredibly frustrating and at times defeating for them,” said Gina Cappuccitti, senior director of housing access and stability services at New Destiny Housing. “One of the biggest challenges is when they're learning that their time is coming up at their DV shelter and that they will be required to go to the Path Intake Center and reapply as if they're entering homelessness for the very first time…when they get that news, (it) is cause for crisis and panic.”  

For survivors without U.S. citizenship, it can be close to impossible to obtain CityFHEPS voucher benefits, a rental subsidy that helps families moving from shelter to more stable housing. 

“There are times where survivors may blame themselves or even return to an abusive partner if they feel that that may give their children a better chance at securing a home, because they're seeing that, practically speaking, the subsidy that they have access to simply isn't going to cut it,” Cappuccitti said. “So there are sometimes considerations of returning to their country of origin, despite safety concerns there, or returning to an abusive partner and the serious mental health impacts.”

In April, Mayor Eric Adams announced “Project Home,” a pilot program that helps domestic violence survivors find permanent housing. The program aims to provide 100 survivors and their children with rapid housing assistance and expand eligibility for affordable housing. 

“The city needs more resources at HRA to help domestic violence survivors and others exit shelter more quickly,” Branca said. “But there's certainly signs that there'll be improvements.” 

According to the report, the number of survivors seeking refuge in HRA domestic violence shelters has increased slightly compared to 2022, and most people in HRA domestic violence shelters are children, with 58% being younger than 18 years old and 28% being under 5 years old. 

The report includes a number of recommendations: expanding access to housing resources and services and expanding CityFHEPS eligibility for noncitizens, ensuring supportive housing is accessible and adequately funded, increasing investment in microgrants/flexible funding and improving data collection.

New Destiny Housing, the nonprofit organization that released the report, provides housing and services to survivors of domestic violence and their children. On July 25, New Destiny Housing celebrated the opening of its newest supportive housing development, Highgarden Towers. Created in partnership with Georgica Green Ventures, the development includes 219 affordable rental units with 77 units housing survivors of domestic violence.