Version:

Existing law provides various housing and supportive services for individuals and families who are homeless or at risk of homelessness, and defines the terms homeless and at risk of homelessness for those purposes, as specified. Existing law requires the Governor to create the Homeless Coordinating and Financing Council to, among other things, identify mainstream resources, benefits, and services that can be accessed to prevent and end homelessness in California.

Existing federal law, the McKinney-Vento Homeless Assistance Act, establishes various programs and grants to provide a range of services to homeless individuals and families, and defines the terms homeless, homeless individual, and homeless person to mean, among other things, an individual or family who lacks a fixed, regular, and adequate nighttime residence or an individual who resided in a shelter or place not meant for human habitation and who is exiting an institution where he or she temporarily resided.

This bill would require the coordinating council, in consultation with specified state entities, to develop, and recommend in a report to the Legislature, a standard definition of homeless and at risk of homelessness for purposes of providing programs and services to individuals and families who are homeless or at risk of homelessness. The bill would require the coordinating council, in developing the recommended definitions, to review and consider the existing definitions of those terms, as provided in state laws and regulations and the federal McKinney-Vento Homeless Assistance Act.

Date	Status
Aug 30, 2019	In committee: Held under submission.
Aug 12, 2019	In committee: Referred to APPR. suspense file.
Jul 5, 2019	Read second time and amended. Re-referred to Com. on APPR.
Jul 3, 2019	From committee: Amend, and do pass as amended and re-refer to Com. on APPR. (Ayes 8. Noes 2.) (July 2).
Jun 6, 2019	Referred to Com. on HOUSING.
May 24, 2019	In Senate. Read first time. To Com. on RLS. for assignment.
May 23, 2019	Read third time. Passed. Ordered to the Senate.
May 20, 2019	Read second time. Ordered to third reading.
May 17, 2019	Read second time and amended. Ordered returned to second reading.
May 16, 2019	From committee: Amend, and do pass as amended. (Ayes 16. Noes 1.) (May 16).
May 8, 2019	In committee: Set, first hearing. Referred to APPR. suspense file.
Apr 25, 2019	Coauthors revised.
Apr 22, 2019	Re-referred to Com. on H. & C.D.
Apr 11, 2019	From committee chair, with author's amendments: Amend, and re-refer to Com. on H. & C.D. Read second time and amended.
Feb 27, 2019	Re-referred to Com. on H. & C.D.
Feb 26, 2019	From committee chair, with author's amendments: Amend, and re-refer to Com. on H. & C.D. Read second time and amended.
Jan 17, 2019	Referred to Com. on H. & C.D.
Dec 4, 2018	From printer. May be heard in committee January 3.
Dec 3, 2018	Read first time. To print.

Date	Description	Location	Votes
Aug 12, 2019	Placed on suspense file	Senate Standing Committee on Appropriations	7 0 0 Passed
Jul 2, 2019	Do pass as amended, but first amend, and re-refer to the Committee on [Appropriations]	Senate Standing Committee on Housing	8 2 1 Passed
May 23, 2019	AB 67 Luz Rivas Assembly Third Reading	Assembly Floor	69 4 6 Passed
May 16, 2019	Do pass as amended.	Assembly Standing Committee on Appropriations	16 1 1 Passed
Apr 24, 2019	Do pass and be re-referred to the Committee on [Appropriations]	Assembly Standing Committee on Housing and Community Development	8 0 0 Passed

Key

Pro

Against

Did Not Vote

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anthony Portantino, Chair

2019 - 2020 Regular Session

AB 67 (Luz Rivas) - Homeless integrated data warehouse


Version: July 5, 2019	Policy Vote: HOUSING 8 - 2
Urgency: No	Mandate: No
Hearing Date: August 12, 2019	Consultant: Mark McKenzie

Bill Summary:

AB 67 would require the Department of Housing and Community Development (HCD) to create a statewide homeless integrated data warehouse (data warehouse) in coordination with state and local partners, including the Homeless Coordinating and Financing Council (HCFC). The bill would also require HCD to collaborate with specified state agencies to draft and carry out a strategy to integrate available information to provide longitudinal, cost-based studies, as specified

Fiscal Impact:

HCD estimates one-time IT costs of at least $15 million to establish an integrated statewide database of homeless information. (General Fund)
HCD estimates ongoing administrative costs of approximately $1.23 million in 2020-21 and $1.16 million ongoing for 7.0 PY of permanent staff, and an additional $299,000 in 2020-21 and $283,000 in 2021-22 for 1.0 PY of limited-term legal staff. HCD administrative tasks include: development, procurement, and operations of the IT systems; executing contracts and memoranda of understanding, developing consent forms and participation agreements, data analysis, managing privacy issues, and ensuring data quality. (General Fund)
HCFC estimates ongoing costs of approximately $200,000 annually for 1.0 PY of new staff to coordinate with HCD on the development and administration of the data warehouse. (General Fund)
The Department of Healthcare Services (DHCS) estimates that it could incur minor to significant one-time costs between $50,000 and $2 million if it is determined that additional data fields must be programmed into the Single Streamlined Application, the Medi-Cal Eligibility Data System, and the Medi-Cal Management Information System. (General Fund)
The Department of Social Services (DSS) estimates one-time automation costs of $5-6 million to add data fields to allow for collection of relevant data on those experiencing or at risk of homelessness, and synchronizing the information to the data warehouse. (General Fund)
DSS also estimates annual local assistance costs of approximately $3.9 million annually ($2.63 million of which would be General Fund) for caseworker time to obtain and enter data on those experiencing or at risk of homelessness.
Minor ongoing costs for the Department of Corrections and Rehabilitation (CDCR), the Department of Education (CDE), the Department of State Hospitals (DSH), and the Department of Veterans Affairs (DVA), to the extent relevant data is currently collected. (various funds)

Background:

The federal Department of Housing and Urban Development (HUD) administers the Continuum of Care Program as part of the McKinney-Vento Homeless Assistance Act. This competitive grant program is designed to encourage cities and counties to address the problems of housing and homelessness in a coordinated and strategic fashion. The fundamental components of a continuum of care include prevention, outreach, emergency shelter, transitional housing, permanent housing, permanent supportive housing, and supportive services. Among other requirements, a continuum of care (CoC) must collect anonymous data on the homeless clients served within the continuum and maintain the data in a homeless management information system (HMIS). Currently, there are 43 CoCs in California, covering all of the state except for a few small, rural counties. Each one has an HMIS, though the systems are not uniform. HUD collects HMIS data nationwide and compiles it in the Annual Homeless Assessment Report to Congress, but the report contains very little state-specific data.

Existing law establishes the Homeless Coordinating and Financing Council (Council) within the Business, Consumer Services, and Housing (BCSH) Agency to coordinate the state’s response to homelessness. One of the stated goals of the Council is to create a statewide data system or warehouse that collects local data through HMIS, with the ultimate goal of matching data on homelessness to programs impacting homeless recipients of state programs, such as Medi-Cal and CalWORKS.

Proposed Law:

AB 67 would require HCD to create a statewide homeless integrated warehouse in coordination with state and local partners, including HCFC, to compile HMIS data, cooperate and collaborate with specified state agencies to draft and carry out a strategy to integrate state data into the warehouse, and to facilitate the creation of a users’ group to ensure quality, relevance and appropriate access to the integrated data.

The integrated data warehouse would serve to develop a composite portrayal of the state homeless population and the services provided individuals and families who are homeless or services and are at risk of homelessness and receiving prevention services. Information compiled would include data necessary to determine:

Basic demographic information on persons experiencing or at risk of homelessness, as specified.
The number of disabled individuals and families with a disabled head of household who have been homeless for at least a year or four times in the last three years.
Homeless individuals’ access to benefits.
The number of individuals and families experiencing homelessness.
The number and entry and exit dates of individuals and families living in emergency housing, transitional housing, and permanent housing, respectively.
Last known location or ZIP Code of homeless individuals or families when housed.
Stated reasons for homelessness.
Disability status of people experiencing homelessness;
Veteran status of people experiencing homelessness; and
The number of unaccompanied youth experiencing homelessness.

AB 67 would require CDCR, CDE, DHCS, DSH, DSS, and DVA to collaborate with HCD to draft and carry out a strategy to integrate information into the warehouse to provide longitudinal, cost-based studies to determine specified information on the individuals they serve who experience homelessness. Local agencies providing homeless services and using an HMIS would be encouraged to collaborate with HCD on developing the data warehouse.

To the extent permitted by federal law, participating agencies must enter into data sharing agreements or memoranda of understanding with HCD to facilitate data sharing. The bill would require the data warehouse, all state and local agencies, or persons with access to information in or derived from the warehouse to comply with all relevant state and federal laws regarding privacy and personally identifiable information when inputting, accessing, using, disclosing, transporting, or otherwise interacting with the collected data. Once the data warehouse is complete, participating entities must input and update data at least on a quarterly basis, and the data contained in the data warehouse would be available to all participating agencies. The bill requires DSS to use the information to inform the provision of services and improve outcomes for children, youth, and families served by the child welfare system.

The bill’s requirements would only become operative if the Legislature appropriates sufficient funds, including any private donations, to HCD for these purposes.

Related Legislation:

AB 2161 (Chiu), which was held on this Committee’s Suspense File last year, was substantially similar to this bill.

AB 683 (Ammiano), which was moved to this Committee’s Suspense File in 2011, would have required HCD to create a statewide homeless integrated data warehouse comprised of local HMIS data, contingent on receiving federal and private funds. The bill was amended in 2012 to require DHCS and DSS to collect information on the homelessness status of persons applying for benefits, and held on this Committee’s Suspense File.

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SENATE COMMITTEE ON HOUSING

Senator Scott Wiener, Chair

2019 - 2020 Regular

Bill No: AB 67 Hearing Date: 7/2/2019

Author:	Luz Rivas
Version:	5/17/2019
Urgency:	No	Fiscal:	Yes
Consultant:	Erin Riches

SUBJECT: Homeless integrated data warehouse

DIGEST: This bill requires the state Department of Housing and Community Development (HCD), in coordination with the Homeless Coordinating and Financing Council (HCFC), to create a state homeless integrated data warehouse, as specified.

ANALYSIS:

Existing law:

Establishes the HCFC, with the purpose of coordinating the state’s response to homelessness by utilizing Housing First practices.
Defines “Housing First” to mean the evidence-based model that uses housing as a tool, rather than a reward, for recovery and that centers on providing or connecting homeless people to permanent housing as quickly as possible. Housing First providers offer services as needed and requested on a voluntary basis and that do not make housing contingent on participation in services.
Requires the Governor to appoint up to 17 members to the HCFC. These include the Secretary of BCSH, or their designee, who shall serve as HCFC chair, and representatives of the following:
1. The state Department of Transportation.
2. The state Department of Housing and Community Development (HCD).
3. The state Department of Social Services (DSS).
4. The California Housing Finance Agency.
5. The state Department of Health Care Services (DHCS).
6. The state Department of Veterans Affairs (CDVA).
7. The state Department of Corrections and Rehabilitation (CDCR).
8. The California Tax Credit Allocation Committee.
9. The Victim Services Program in the Office of Emergency Services.
10. A formerly homeless person who lives in California.
11. A formerly homeless youth who lives in California.
12. Two representatives of local agencies or organizations that participate in the US Department of Housing and Urban Development’s (HUD) Continuum of Care (CoC) Program.
13. State advocates or other members of the public or state agencies, at the Governor’s discretion.
14. Two different stakeholder organizations, appointed by the Senate Rules Committee and the Assembly Speaker.
Authorizes the HCFC to invite stakeholders, individuals who have experienced homelessness, members of philanthropic communities, and experts to participate in meetings or provide information.

This bill:

Requires HCD, in coordination with the HCFC, to create a state homeless integrated warehouse to compile data from collaborative agencies’ Homeless Management Information Systems (HMIS). Requires information compiled for the warehouse to include, but not to limited to, data necessary to determine all of the following:
1. Basic demographic information about individuals experiencing homelessness or who are at risk of homelessness, including, if available, ethnic and racial identity, sexual orientation, gender identity, and gender expression.
2. The number of individuals with disabilities and the number of families with a head of household experiencing a disability who have been homeless for at least one year or at least four times in the last three years.
3. Homeless individuals’ access to benefits.
4. The number of individuals and families experiencing homelessness.
5. The number, and entry and exit dates of:
  1. Homeless individuals and families living in emergency housing.
  2. Homeless individuals and families living in transitional housing.
  3. Homeless individuals and families living in permanent housing.
6. Last known location or zip code of homeless individuals or families when housed.
7. Stated reasons for homelessness.
8. Disability status of people experiencing homelessness.
9. Veteran status of people experiencing homelessness.
Requires HCD to cooperate and collaborate with CDCR, the state Department of Education, DHCS, the Department of State Hospitals (DSH), DSS, and CDVA to draft and carry out a strategy to integrate information into the data warehouse to provide longitudinal, cost-based studies to determine all of the following:
1. The number of people imprisoned each year who were homeless upon arrest, and the cost of their imprisonment.
2. The number of parolees experiencing homelessness each year, and the cost of their parole.
3. The number of children in California schools experiencing homelessness.
4. The number of children receiving foster care services whose family members are homeless, and the cost of the foster care provided to those children each year.
5. Relevant information regarding the number of homeless individuals receiving services through DSH, DSS, and CDVA, and the cost and outcomes of those services.
6. The number of people living in housing funded through HCD programs, who were homeless upon admission.
Requires HCD to facilitate the creation of a users group, including but not limited to a minimum of five and a maximum of 15 select members of contributing CoCs, to ensure quality, relevance, and appropriate access to the integrated data.
Requires the data warehouse to comply with all relevant state and federal laws relating to privacy and personally identifying information.
Requires participating agencies to input and update their data quarterly at minimum, once the warehouse is completed.
Encourages local agencies providing homeless services that use HMIS to collaborate with HCD in developing the data warehouse.
Makes implementation of this bill contingent upon legislative appropriation, including funds from private donations if available, to HCD.

COMMENTS

Purpose of the bill. The author states that California is experiencing a homeless crisis. Despite the state’s continuous effort to provide intervention and rapid rehousing programs, more and more people are becoming homeless than we can house. For example, according to the 2019 Los Angeles Homeless Services Authority (LAHSA) report, despite housing 21,631 people in 2018, there was a 16% increase in homelessness in the City of Los Angeles, and a 12% increase in Los Angeles County, based on the 2017 and 2019 homeless point-in-time counts. This shows that there is a fundamental problem with our current approach to tackling homelessness. This bill would require HCD, in coordination with the HCFC, to create a statewide data warehouse using local HMIS data throughout California, for the purpose of developing a composite portrayal of the homeless population and services currently provided to people who are homeless, as well as integrating local homeless data with state information to better inform policies to address homelessness.
The HCFC. SB 1380 (Mitchell, 2016) created the HCFC to coordinate the state’s response to homelessness with the HCD. The HCFC is tasked with collaborating with all state agencies to ensure they revise or adopt guidelines and regulations that incorporate the core components of Housing First, if they do not already do so. In 2017, SB 918 (Wiener) expanded the role of the HCFC by requiring it to set and measure progress toward goals to prevent and end homelessness among California’s youth. Last year, the HCFC was further tasked with administering the newly created Homeless Emergency Assistance Program (HEAP) to provide localities with flexible block grant funds to address their immediate homelessness challenges. One of the stated goals of the HCFC is to create a statewide data system or warehouse that collects local data through HMIS.
HMIS. Federal funding for supportive housing and other homeless services is coordinated through local jurisdictions called Continuums of Care (CoCs). HUD requires all CoCs to implement a HMIS as a condition of funding. HMIS is a local information technology system that is used to collect and track client-level data and data on the provision of housing and services to homeless individuals. California has 43 CoCs, each of which is responsible for selecting and implementing an HMIS software solution that complies with HUD’s data collection, management, and reporting standards.

Unfortunately, these databases are not connected. Therefore, individuals who experience homelessness in more than one CoC jurisdiction may get counted more than once in statewide counts. Also, if they receive services through multiple CoCs, the full extent of the services they receive is unknown by each CoC. Without accurate aggregated statewide data, researchers have found it difficult to evaluate the state’s homeless population and programs and to monitor the state’s progress towards addressing homelessness. Several states, including Michigan, Connecticut, and New York have built statewide HMIS data warehouses to better inform their policies to address homelessness. This bill, in part, directs HCD, in coordination with the HCFC, to create a statewide HMIS data warehouse throughout California for the purpose of developing a composite portrayal of the homeless population in the state.

Implementation concerns. This bill poses potentially significant implementation issues. Compiling data from 43 different CoCs and many different software implementations of HMIS into one database will require major investments in staff and resources to accomplish. Although a few states have successfully created similar statewide databases, they have fewer CoCs to compile. Gathering data from state agencies is also potentially complicated, due to differences in data collection and management standards, and in the different sectors (prisons, hospitals, and schools) that interact with homeless people. Under this bill, HCD and other state agencies would have to figure out how to properly manipulate and transform the relevant data in order to integrate it correctly into one data warehouse.
Privacy Concerns. This bill also poses potential concerns about ensuring the privacy of individuals whose data is being shared and collected. The bill states that the data warehouse shall comply with all relevant state and federal laws regarding privacy and personally identifying information. In addition, each HMIS has its own privacy policies in place, which include contractual obligations and standards of privacy that cannot be overridden by the state. To develop the data warehouse, HCD would have to negotiate and implement protection that satisfies the privacy requirements for all the various contracts and obligations. One option to avoid sharing protected personal information would be to create a universal identification system that allows matching records without sharing protected personal information.
Trying again. This bill is virtually identical to AB 2161 (Chiu, 2018), which was held on the Senate Appropriations Committee’s suspense file last year.
Amendments. The author will accept amendments that are technical and clarifying and provide further direction to DSS regarding foster youth data.

Related Legislation:

AB 58 (Luz Rivas, 2019) — adds a representative from the state Department of Education to the HCFC. This bill will be heard in this committee today.

SB 687 (Rubio, 2019) — increases the number of HCFC members appointed by the Governor from 17 to 20, requiring the Governor to additionally appoint a formerly homeless college student, a formerly homeless veteran, and a formerly homeless parent. This bill is in the Assembly Housing Committee.

SB 333 (Wilk, 2019) — requires the HCFC, by July 1, 2021, to develop and implement a statewide strategic plan for addressing homelessness in the state. The bill also requires the HCFC, by January 1, 2021, to implement strategic plans to assist Continuums of Care (CoCs) to better implement HUD recommended activities and/or better meet federal HUD requirements. This bill is in the Assembly Housing Committee.

SB 573 (Chang, 2019) — continuously appropriates $250 million General Fund per year to HEAP. This bill is in the Assembly Housing Committee.

AB 67 (Luz Rivas, 2019) — requires HCD, in coordination with the HCFC, to create a state homeless integrated data warehouse, as specified. This bill will be heard in this committee today.

AB 307 (Reyes, 2019) — requires the HCFC to develop a grant program to support homeless youth and to prevent and end homelessness among California’s youth, as specified. This bill will be heard in this committee today.

AB 1702 (Luz Rivas, 2019) — requires BCSH to create additional staff positions at the HCFC and requires the HCFC to make recommendations to the Legislature on streamlining homeless programs and delivery. This bill will be heard in this committee today.

SB 918 (Wiener, Chapter 841, Statutes of 2018) — established the Homeless Youth Act of 2018 to better serve the state’s homeless youth population and requires the HCFC to take on additional related responsibilities that are focused on addressing the needs of youth experiencing homelessness.

SB 850 (Senate Committee on Budget and Fiscal Review, Chapter 48, Statutes of 2018) — provided for over $600 million in funding to various projects aimed at reducing homelessness. Also moved the HCFC from HCD to BCSH, authorized the creation of an HCFC Executive Director, and provided for the allocation of several staff members to HCFC.

SB 1380 (Mitchell, Chapter 847, Statutes of 2016) — established the HCFC to oversee implementation of the Housing First regulations and, among other things, identify resources, benefits, and services that can be accessed to prevent and end homelessness in California. It also required state agencies or departments that fund, implement, or administer state housing or housing-related services programs to adopt guidelines and regulations to include Housing First policies.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

POSITIONS: (Communicated to the committee before noon on Wednesday,

June 26, 2019.)

SUPPORT:

California Apartment Association
California School Employees Association
Housing California

Santa Monica; City Of

OPPOSITION:

None received.

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ASSEMBLY THIRD READING

ATR Bill Id:AB 67

Author:(Luz Rivas and Chiu)

As Amended Ver:May 17, 2019

Majority vote

SUMMARY:

This bill requires the Department of Housing and Community Development (HCD) to create a statewide homeless integrated data warehouse in coordination with the Homeless Coordinating and Financing Council (HCFC). The bill would also require HCD to collaborate with specified state agencies to draft and carry out a strategy to integrate available information to provide longitudinal, cost-based studies.

Major Provisions

Requires the data warehouse to include specified data.
Requires HCD, with the cooperation and collaboration of the Department of Corrections and Rehabilitation, the Department of Education, the Department of Health Care Services, the Department of Mental Health, the Department of Social Services, the Department of Education, the Department of Veterans Affairs, and the Department of Alcohol and Drug Programs, to draft and carry out a strategy to create an integrated research database to provide longitudinal, cost-based studies.

COMMENTS:

In 2016, the state created the Homeless Coordinating and Financing Council (Council) [SB 1380 (Mitchell), Chapter 847] made up of all state departments and agencies that provide housing or housing-based services to people experiencing homelessness or at risk of homelessness to better coordinate the state's response to homelessness. One of the stated goals of the Council is to create a statewide data system or warehouse that collects local data through HMIS, with the ultimate goal of matching data on homelessness to programs impacting homeless recipients of state programs, such as Medi-Cal and CalWORKs.

This bill would require HCD, in coordination with the Council, to create a statewide data warehouse using local HMIS data throughout California for the purpose of developing a composite portrayal of the homeless population in the state, as well as services currently provided to people who are homeless. Several other states, including Michigan, Connecticut, and New York, have built statewide data warehouses to integrate local homeless data with state information to better inform policies to address homelessness.

According to the Author:

According to the Author, "In 2015, the state created the Homeless Coordinating and Financing Council (Council) [SB 1380 (Mitchell), Chapter 847] made up of all state departments and agencies that provide housing or housing-based services to people experiencing homelessness or at risk of homelessness to better coordinate the state's response to homelessness. One of the stated goals of the Council is to create a statewide data system or warehouse that collects local data through HMIS, with the ultimate goal of matching data on homelessness to programs impacting homeless recipients of state programs, such as Medi-Cal and CalWORKS. This bill would require HCD, in coordination with the Council, to create a statewide data warehouse using local HMIS data throughout California for the purpose of developing a composite portrayal of the homeless population in the state, as well as services currently provided to people who are homeless."

Arguments in Support:

According to supporters, AB 67 will give the state access to the information necessary to more effectively and efficiently address the state's homelessness crisis.

Arguments in Opposition:

None on file.

FISCAL COMMENTS:

According to the Assembly Committee on Appropriations:

HCD estimates one-time information technology costs of $15 million (GF) to establish an integrated database of homeless information and $2 million (GF) ongoing to maintain the data warehouse.
HCD estimates administrative costs of approximately $1.3 million (GF) for 7 PY of staff in 2019-20 and approximately $1.2 million (GF) annually ongoing. HCD administrative tasks include executing contracts and memoranda of understanding, developing consent forms and participation agreements, analyzing data, managing privacy issues, and ensuring data quality.
HCFC estimates one-time costs of $200,000 (GF) for one position to coordinate with HCD to develop the data warehouse.
The Department of Healthcare Services (DHCS) estimates costs of $313,000 (GF) for fiscal year (FY) 2020-21 and $295,000 (GF) annually thereafter for two positions if the data match is required to be conducted more than quarterly per fiscal year.
DHCS estimates it could incur minor to significant one-time costs between $50,000 and $2 million (GF) if additional data fields must be programmed into the Single Streamlined Application, the Medi-Cal Eligibility Data System and the Medi-Cal Management Information System.
The Department of Social Services (DSS) may also incur significant one-time costs (GF) to collect relevant data to the extent programming changes to the statewide automated welfare systems (SAWS) and CalHEERS are required.
Costs for the Department of Corrections and Rehabilitation (CDCR), the Department of State Hospitals (DSH) and the Department of Veterans Affairs (DVA) would likely be minor to the extent relevant data is currently collected. The Department of Education reports costs to provide numbers on homeless students would be minor. (Various funds)
The bill is contingent upon an appropriation by the Legislature and costs may be offset to the extent private funding is secured.

VOTES:

ASM HOUSING AND COMMUNITY DEVELOPMENT: 8-0-0

YES: Chiu, Diep, Gabriel, Gloria, Kiley, Limón, Maienschein, Quirk-Silva

ASM APPROPRIATIONS: 16-1-1

YES: Gonzalez, Bigelow, Bloom, Bonta, Calderon, Carrillo, Chau, Diep, Eggman, Gabriel, Eduardo Garcia, Maienschein, Obernolte, Petrie-Norris, Quirk, Robert Rivas

NO: Brough

ABS, ABST OR NV: Fong

UPDATED:

VERSION: May 17, 2019

CONSULTANT: Lisa Engel / H. & C.D. / (916) 319-2085 FN: 0000931

Date of Hearing: May 8, 2019

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Lorena Gonzalez, Chair

ABPCA Bill Id:AB 67

Author:(Luz Rivas) – As Amended Ver:April 11, 2019

Policy Committee:	Housing and Community Development	Vote:	8 - 0

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill requires the Department of Housing and Community Development (HCD) to create a statewide homeless integrated data warehouse (data warehouse) in coordination with the Homeless Coordinating and Financing Council (HCFC). The bill would also require HCD to collaborate with specified state agencies to draft and carry out a strategy to integrate available information to provide longitudinal, cost-based studies.

FISCAL EFFECT:

HCD estimates one-time information technology costs of $15 million (GF) to establish an integrated database of homeless information and $2 million (GF) ongoing to maintain the data warehouse.
HCD estimates administrative costs of approximately $1.3 million (GF) for 7 PY of staff in 2019-20 and approximately $1.2 million (GF) annually ongoing. HCD administrative tasks include executing contracts and memoranda of understanding, developing consent forms and participation agreements, analyzing data, managing privacy issues, and ensuring data quality.
HCFC estimates one-time costs of $200,000 (GF) for one position to coordinate with HCD to develop the data warehouse.
The Department of Healthcare Services (DHCS) estimates costs of $313,000 (GF) for fiscal year (FY) 2020-21 and $295,000 (GF) annually thereafter for two positions if the data match is required to be conducted more than quarterly per fiscal year.
DHCS estimates it could incur minor to significant one-time costs between $50,000 and $2 million (GF) if additional data fields must be programmed into the Single Streamlined Application, the Medi-Cal Eligibility Data System and the Medi-Cal Management Information System.
The Department of Social Services (DSS) may also incur significant one-time costs (GF) to collect relevant data to the extent programming changes to the statewide automated welfare systems (SAWS) and CalHEERS are required.
Costs for the Department of Corrections and Rehabilitation (CDCR), the Department of State Hospitals (DSH) and the Department of Veterans Affairs (DVA) would likely be minor to the extent relevant data is currently collected. The Department of Education reports costs to provide numbers on homeless students would be minor. (Various funds)

COMMENTS:

Purpose. California is home to 25% of the nation's homeless population and 42% of the nation’s chronically homeless. However, state-level data on our homeless residents and their needs is very limited. This bill seeks to create a valuable tool to help structure programs and services that assist the homeless and decrease administrative and program costs by gathering data from local continuums of care and integrating it with data from the numerous state agencies that interact with homeless individuals.
Background. The federal Department of Housing and Urban Development (HUD) administers the Continuum of Care Program as part of the McKinney-Vento Homeless Assistance Act. This competitive grant program is designed to encourage cities and counties to address the problems of housing and homelessness in a coordinated and strategic fashion. Among other requirements, a continuum of care (CoC) must collect anonymous data on the homeless clients served within the continuum and maintain the data in a homeless management information system (HMIS). Currently, there are 43 CoCs in California, covering all of the state except for a few small, rural counties. Each CoC has an HMIS, though the systems are not uniform. HUD collects HMIS data nationwide and compiles it in the Annual Homeless Assessment Report to Congress, but the report contains very little state-specific data.

Prior Legislation. AB 2161 (Chiu), of the 2017-18 Legislative Session, was substantially similar to this bill. It was held on the Senate Appropriations Committee’s Suspense File.

Analysis Prepared by: Jennifer Swenson / APPR. / (916) 319-2081

Date of Hearing: April 24, 2019

ASSEMBLY COMMITTEE ON HOUSING AND COMMUNITY DEVELOPMENT

David Chiu, Chair

ABPCA Bill Id:AB 67 (

Author:Luz Rivas) – As Amended Ver:April 11, 2019

SUBJECT: Housing: homeless integrated data warehouse

SUMMARY: Requires the Department of Housing and Community Development (HCD) to create a statewide homeless integrated data warehouse (data warehouse) in coordination with the Homeless Coordinating and Financing Council (Council). Specifically, this bill:

Requires HCD, in coordination with the Council, to create a data warehouse to compile data from agencies’ Homeless Management Information Systems (HMIS) for the purpose of developing a composite portrayal of the homeless population in the state, as well as services currently provided to people who are homeless.
Requires the data warehouse to include the following:
1. Basic demographic information regarding individuals experiencing homelessness or who are at risk of homeless;
2. The number of individuals with disabilities and the number of families with a head of household experiencing a disability who have been homeless for at least one year or at least four times in the last three years;
3. Homeless individuals’ access to benefits;
4. The number of individuals and families experiencing homelessness;
5. The number and entry and exit dates of individuals and families living in emergency housing;
6. The number and entry and exit dates of individuals and families living in transitional housing;
7. The number and entry and exit dates of homeless individuals and families living in permanent housing;
8. Last known location or ZIP Code of homeless individuals or families when housed;
9. Stated reasons for homelessness;
10. Disability status of people experiencing homelessness;
11. Veteran status of people experiencing homelessness; and,
12. The number of unaccompanied youth experiencing homelessness.
Requires HCD, with the cooperation and collaboration of the Department of Corrections and Rehabilitation, the Department of Education, the Department of Health Care Services, the Department of Mental Health, the Department of Social Services, the Department of Education, the Department of Veterans Affairs, and the Department of Alcohol and Drug Programs, to draft and carry out a strategy to create an integrated research database to provide longitudinal, cost-based studies based on the following information:
1. The number of people imprisoned each year who were homeless upon arrest and the costs of their imprisonment;
2. The number of parolees experiencing homelessness each year and the costs of their parole;
3. The number of children in California schools experiencing homelessness;
4. Claims for Medi-Cal emergency department, hospital, and nursing home services among people experiencing homelessness, and the costs of those claims each year;
5. The number of children receiving foster care services whose family members are homeless and the costs of the foster care provided to those children each year;
6. The number of people who are homeless and receiving services, the costs of those services, and outcomes of those services through the Department of Mental Health, the Department of Social Services, the Department of Veterans Affairs, and the Department of Alcohol and Drug Programs; and
7. The number of people living in housing funded through programs administered by HCD who were homeless upon admission.
Requires HCD to facilitate the creation of a user's group that includes a minimum of five and a maximum of 15 select members of contributing Federal Continuum of Care (CoC) Program Collaborative Applicants to ensure quality, relevance, and appropriate access to the integrated data.
Provides that the data warehouse shall comply with all relevant state and federal laws regarding privacy and personally identifying information.
Provides that upon completion of the data warehouse, participating agencies shall input their data at a minimum each quarter.
Encourages local agencies that use a HMIS to collaborate with HCD in developing the data warehouse.

EXISTING LAW:

Enacted in 1987, the Stuart B. McKinney Homeless Assistance Act (McKinney-Vento) authorized federal funding for homeless assistance programs administered by several federal agencies, including the U.S. Departments of Housing and Urban Development (HUD), Health and Human Services, Labor, Education, and Veterans Affairs. HUD operates two programs through McKinney-Vento, the Federal Emergency Shelter Grant Program and the CoC Program.
Enacted in May 2009, the Homeless Emergency Assistance and Rapid Transition to Housing Act reauthorized and made changes to McKinney-Vento, including increasing the priority on homeless families with children and increasing prevention resources.

FISCAL EFFECT: Unknown.

COMMENTS:

Background: California is facing a homelessness crisis. Our state is home to 25% of the nation's homeless population and 42% of the nation's chronically homeless individuals. Already home to the largest homeless population in the country, from 2016 to 2017 California experienced the largest increase in the number of residents experiencing homelessness – over 16,000 individuals. Virtually every community in the state has been impacted. San Diego and Los Angeles have experienced deadly Hepatitis A outbreaks and the American River has been contaminated with E. coli. Wildfires across the state have exacerbated homelessness.

The state and local communities have made significant investments to increase the supply of affordable housing and housing for those who are homeless. In 2016 the Legislature passed No Place Like Home, creating $2 billion in new funding for construction of supportive housing units. On the November 2018 ballot, voters approved a $4 billion bond to fund affordable housing that includes $1.5 billion for affordable housing developments. SB 2 (Atkins) Chapter 364, Statutes of 2017, is generating ongoing funding for affordable housing, including significant funding in the first year to address homelessness.

Local and state data integration: Continuums of Care (CoC) are local homeless assistance program planning networks that coordinate efforts to address homelessness, including deciding how to spend federal homeless grant monies. Some are governmental entities, others are non-governmental, and some are joint powers authorities. Local CoCs produce annual plans that identify the needs of local homeless populations, the resources that are currently available in the community to address those needs, and additional resources needed to fill identified gaps. The CoC process is a community-based approach that encourages the creation of collaborative, comprehensive systems to meet the diverse of needs of local homeless populations.

By gathering data from local CoCs and integrating it with data from the numerous state agencies that interact with homeless individuals, the state would have a valuable tool to assist with structuring programs and services that assist the homeless to improve outcomes and decrease administrative and program costs. A state data warehouse on homelessness would improve collaboration among state agencies, help assess the costs of homelessness to the state, provide greater transparency in state agency and grantees' operations, determine what interventions work to prevent or end homelessness, identify gaps in services, discover how patterns of service use relate to patterns of homelessness, analyze trends in homelessness, assess use of mainstream systems among people experiencing homelessness, and enhance planning and policy efforts to reduce homelessness. Federal funds are available to create this type of data warehouse.

In addition to designing a statewide data warehouse, the bill requires HCD, in collaboration with other state agencies, to draft and carry out a strategy to integrate a research database comprised of information from the Departments of Correction and Rehabilitation, Education, Health Care Services, Health, Social Services, Veterans Affairs, and California Alcohol and Drug Programs, to provide longitudinal, cost-based studies on the following information:

The number of people imprisoned each year who were homeless upon arrest and the costs of their imprisonment.
The number of parolees experiencing homelessness each year and the costs of their parole.
The number of children experiencing homelessness in California schools.
Claims for Medi-Cal emergency department, hospital, and nursing home care among people experiencing homelessness, and the costs of those claims each year.
The number of children receiving foster care services whose family members are homeless and the costs of the foster care provided to those children each year.
The number of people who are homeless receiving services, the costs of those services, and outcomes of the services through the Departments of Mental Health, Social Services, Veterans Affairs, and California Drug and Alcohol Programs.
The number of people living in housing funded through programs administered by HCD who are homeless upon admission.

Privacy issues: AB 67 states that the data warehouse will meet the requirements of HUD's HMIS technical standards in protecting privacy. Each HMIS has its own privacy policies in place that include contractual obligations and standards of privacy. The state cannot override these contractual and statutory obligations. In developing the statewide data warehouse, HCD will need to negotiate and implement protections that satisfy requirements for all the various contracts and obligations. The data warehouse must obey all relevant federal and state data privacy standards.

Previous legislation:

AB 2161 (Chiu) (2018) would have required HCD to create a statewide homeless integrated data warehouse. The bill was held on suspense in the Senate Committee on Appropriations.

REGISTERED SUPPORT / OPPOSITION:

Support

California School Employees Association

Junior Leagues of California state Public Affairs Committee

County of San Bernardino

Opposition