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Make Your Change Count: Providing Funding and Services to the Homeless
Homelessness is a widespread issue in every state, city, and county. Specifically, the City
of Chicago suffers from a significantly large homeless population. Many people live in parks,
tents, or whatever space they can find for a night. They may not know where they will sleep the
next night or even where their next meal will come from. The homeless are a combination of
young and old, mentally ill, the drug and alcohol addicted, the poor, the unemployed, educated
and uneducated, men, women, and children. Each person has a different need. The homeless
population in the City of Chicago continues to suffer from a lack of resources to help underlying
A homeless individual is defined as (1) an individual who lacks a fixed, regular, and
adequate nighttime residence; and (2) an individual who has a primary nighttime residence that
is: (a) a supervised publicly or privately operated shelter designed to provide temporary
accommodations, (b) an institution that provides a temporary residence for individuals intended
to be institutionalized or (c) a public or private place not designed for, or ordinarily used as, a
regular sleeping accommodations for human beings. Chicago Coalition for the Homeless, 2015
Department of Education adds: those who are sharing the housing of other persons due to loss of
housing, economic hardship, or similar reasons; are living in motels, hotels, trailer parks, or
camping grounds due to the lack of alternative adequate accommodations; are living in
In the 2017 Point in Time (PIT) count and survey conducted by the Voorhees Center for
Neighborhood & Community Improvement at the University of Illinois at Chicago, the results
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demonstrated that there are nearly 5,657 homeless in the City of Chicago. City of Chicago, 2017
Time count and survey of unsheltered and sheltered homeless persons in Chicago is led by the
Department of Family and Support Services (DFSS). Id. The survey is a mandate by the United
States Department of Housing and Urban Development. Id. The intent of the survey is to create a
picture of homelessness in Chicago. Id. The data is compared to previous counts and can help
Chicago develop a better understanding of homeless persons. Id. The data is used to estimate the
needed resources and track progress in reducing the number of homeless persons. Id. In order to
conduct a comprehensive count of all homeless persons in Chicagos emergency shelters and
transitional housing environments, each shelter was provided with a tally sheet and a set of
surveys. Id. DFSS partnered with homeless providers to conduct a comprehensive street outreach
count that covered all public areas. Id. The Chicago Transit Authority (CTA) and Chicago Park
District also participated in helping provide numbers for their public areas. Id. The survey for
2017 took place on January 26 and identified 4,096 homeless individuals residing in shelters and
1,561 unsheltered on the street or other locations not meant for human habitation. Id. The
Further, the Point in Time survey found that there are 570 families living in shelters with
children. Id. 29% of the homeless population was under the age of 17. Id. The survey found 343
chronically homeless persons. Id. Homeless individuals and families are defined as chronic by
the Department of Housing and Urban Development if they have a disability and either have
resided in emergency shelters, safe havens, or places not meant for human habitation or have
been homeless continuously for at least one year or on four separate occasions in the last three
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years where the combined length of time homeless on those occasions was at least 12 months. Id.
This number was more than twice the 2016 count. Id.
The survey includes questions related to physical and mental health conditions and
service access. Id. The purpose of these questions is to understand the needs among the homeless
population. Id. 18% of the sheltered population and 39% of the unsheltered population reported
receiving services for substance abuse. Id. 19% of the sheltered population and 28% of the
unsheltered population reported receiving mental health services. Id. The survey also found that
one-in-five sheltered and one-in-four unsheltered homeless persons reported being a victim of
violence. Id. 16% of sheltered persons and 28% of unsheltered persons reported having a
disability. Id. When asked Where are you going to stay tonight? nearly 40% reported they
would be staying anywhere outside, with another 20% stating they would stay on the CTA. Id.
This year, the number of homeless living on the streets increased. Id.
In April 2017, the Chicago Coalition for the Homeless (CCH) released an estimate of
82,212 homeless persons in Chicago. Chicago Coalition for the Homeless, 2015 Estimate of
2015 American Community Survey (ACS). Id. The ACS is a survey given nationally each year
to households throughout the country by the United States Census Bureau to track changes in US
landscape. Id. Recently, an analysis of the survey data revealed an increase in what they describe
as doubled-up households. Id. They defined doubled-up as any additional adult in the
household who was not the head of household or their spouse or partner. Id. The CCH decided
that with this information, they could use a more refined definition to estimate the homeless
population. Id. The CCH used the ACS data to estimate the number of doubled-up individuals in
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Chicago in 2015. Id. It also used data from the citys Homeless Management Information System
to count those served in the shelter systems. Id. The Homeless Management Information System
is required by the United States Department of Housing and Urban Development. Id. It requires
that each metropolitan area keep a database that collects specific data on people experiencing
homelessness and the housing and homeless services that they receive. Id. This helps to better
understand homelessness and allows a measure of progress towards specific goal. Id. The
analysis done by the CCH, with information from the US Census Department and Homeless
Management Information System, found that in 2015, 82% of people experiencing homelessness
in Chicago were living doubled-up. Id. For homeless people living in families with children, that
number was 88%. Id. CCH found that families that access the shelter system and those living
doubled-up lose their housing for similar reasons: domestic violence, divorce, loss of a job, and
were served in the shelter system. Id. Homeless youth ages 14-24 totaled 11,231 and of those
9,792 were unaccompanied homeless single youth and 1,439 were unaccompanied homeless
parenting youth. Id. These numbers take into consideration not only the Department of Housing
and Urban Developments definition of a homeless person, but also the Department of
Educations definition of a homeless individual to incorporate those living with others instead of
using the shelter system due to hardship and overcrowded conditions. Id.
Further, the CCH reports that the Chicago Public Schools identified 18,117 homeless
students during the 2016-2017 school year. Chicago Coalition for the Homeless, Frequently
The share of homeless students in Chicago Public Schools has remained about the same at
almost 5% of total enrollment. Id. In addition, Chicago reported the largest increase in veteran
homelessness between 2009 and 2016, a 20.2% increase. Id. Chicago also reported 1,701
emergency shelter beds available, down from 2,064 beds in 2014. Id. Chicago Coalition for the
Homeless, The Facts Behind the Faces, March 2015, available at:
http://chicagohomeless.issuelab.org/resource/the-facts-behind-the-faces-a-fact-sheet-from-the-
income renter households composing 52.3% of all city renters. Id. The last count in 2012
revealed 280,301 Chicago households paying rent were cost burdened, which means they paid
30% or more of their income for housing. Id. The annual income needed to afford fair market
rent for a two-bedroom unit in the city of Chicago has increased by nearly $520. Id. The average
hourly income to afford this is $18.83, compared with an average of $17.34 in the state of
Illinois. Id. Chicago has less than 47 units that are available and affordable per 100 renter
households with extremely low income. Id. The United States Conference of Mayors 2013
Hunger and Homelessness Survey found that across 25 cities, including Chicago, 22% of
homeless persons needing assistance did not receive it. Id. In addition, 55,811 individuals in
Illinois were turned away from the Emergency and Transitional Housing Program due to the
programs insufficient resources. Id. CCHs numbers and new way of calculating the homeless
population allow the City of Chicago to look at the doubled-up count, and shed light on a
population that is largely overlooked. This leads to more data and finding more ways to fix the
problem of homelessness.
In order to help decrease homelessness, the City of Chicago needs to provide more
resources to the homeless. However, they cannot do it alone. The City of Chicago should
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consider starting a text-to-give campaign similar to the campaign started in the City of
Philadelphia. In Philadelphia, the Mayor started a campaign that each person in the city could
text 80077 and enter Share to make a donation of $5 to homelessness. Tricia Nadolny, City:
Stop paying panhandlers, text-to-give instead, June, 2017, Philadelphia Inquirer, available at:
http://www.philly.com/philly/news/politics/city/city-stop-paying-panhandlers-text-to-give-
instead-20170612.html. This donation would then be matched by the City of Philadelphia and
even further, the city will match each donation. Id. The City of Philadelphia found that there is
an opioid crisis in the city, and that when Philadelphians donate money to the homeless, it
largely goes towards buying drugs. Id. In order to combat this problem, if the person were to text
to give $5, that money would go directly to housing and other resources that the homeless need.
Id. The City stated that the money is used by more than 60 non-profit organizations to provide
housing, jobs and services to help panhandlers and others who live on the streets. City of
to-address-street-homelessness/. The City of Philadelphia also stated this would help the problem
of panhandling that is largely associated with homelessness. Id. Panhandling is defined as any
solicitation made in person upon any street, public place or park in the city, in which a person
requests an immediate donation of money or other gratuity from another person. Id. In a study
done in Philadelphia, the City found that 52% of panhandlers were homeless. Id. 47% of them
panhandled because they were hungry, while 63% reported a struggle with substance abuse. Id.
The City implemented this campaign because if more resources and housing options were
available, it could help take panhandlers off the streets and create a safer environment for
In order to implement a similar campaign in the City of Chicago, the City should create
the fund in Title 5: Housing and Economic Development of the City Code. This will set up a
Housing Opportunities through Many Efforts and Services (HOME) Fund. The ordinance will
state:
Collection of fees--
The City shall establish the Housing Opportunities through Many Efforts and Services
(HOME) fund into which all text-to-give donations shall be deposited. The City shall also
match each donation made by using funds from housing violation fees and if there are
insufficient funds the City shall appropriate sufficient funds to match each text to give
donation from the General Revenue Fund.
Use of fund--
All fees deposited into the Housing Opportunities through Many Efforts and Services
(HOME) fund shall be used towards the creation of affordable housing and homeless
shelters including social services.
In addition, the City will further amend 5-8-130: Housing Violation Penalty to receive the funds
This amendment will allow the City of Chicago to allocate funds from housing penalties to go
towards homeless resources and more housing options. The goal of this text-to-give fund is to
bring in everyone in the City of Chicago to help create affordable housing. This allows more
people to donate to the problem and put their money towards homelessness. The goal is that the
money will allow homeless shelters to take in more people and provide more services that can
help with the underlying problems of drug abuse, mental health, domestic violence, and so many
other problems that homeless individuals face. In addition, a goal of this program is to create a
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creative solution to homelessness that can generate more funds and implement change.
Another goal of this initiative is to have policy champions and stakeholders come
together to pass the creation of the HOME Fund. Alderman that work on the Department of
Housing and Economics Committee and Alderman that continuously work to prevent
homelessness should join together to help implement this text-to-give campaign. Alderman such
as James Cappleman, who work with DFSS to help those who are homeless access food, shelter,
and treatment to improve their lives. Alderman Cappleman is a licensed social worker and has
his own non-profit that empowers women who have experienced abuse. Alderman Walter
Burnett is a strong advocate for affordable housing and he has required all developments within
his ward to have an affordable component. Many Alderman in Chicago have worked tirelessly to
impact homelessness. Further, stakeholders like the Chicago Coalition for the Homeless, can
sign on to support this ordinance so that many nonprofits similar to them can receive additional
funding. This ordinance will require policy champions and stakeholders, both non-governmental
and governmental, to come together to provide an innovative solution that allows every
providing more sources of funding. Chicago in particular has started several different programs
to help solve homelessness. However, each solution has yet to provide sufficient funds to reduce
homelessness in Chicago. First, many different cities have tried to deter panhandling.
Panhandling as consistently been upheld by the courts as free speech. City of Philadelphia,
regulate aggressive panhandling. Id. Aggressive panhandling is defined as soliciting money for
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any purpose on the public sidewalk in an aggressive manner, or accompanied by conduct that
cause a reasonable person to fear bodily harm, damage to or loss of property. ID. This can lead
to arrest which imposes a penalty of around one hundred dollars. Id. This, however, did not
reduce panhandling as many of those arrested were homeless and did not have a source of
income. Id. They could not pay the penalty, and were put back out on the street. Id. Further, the
police officers do not have the resources to determine if the panhandler needs to be assessed by
social services and it would cause a significant delay to wait for social services. Id. Further, there
are very limited places social services can put the homeless due to a lack of affordable options.
Id. Therefore, the implementation of a penalty on panhandlers has not helped solve the problem.
Id. It imposes a large fee on those who do not have the income to pay the fine. Id. It has not
deterred any panhandlers and has not led to a decrease in homelessness. Id. Similarly, cities have
put fines on disorderly conduct or public urination. Id. This has not helped the problem as well
because excessive fines on people with no income are not effective. Id.
Other cities have implemented a Day for Change pilot program. Mayor Rahm Emanuel
and the Department of Family Supports and Services (DFSS) announced the Day for Change
initiative that creates a jobs program providing up to 100 homeless individuals an opportunity to
connect to services while earning a modest wage. City of Chicago, Mayor Emanuel Announces
New Program To Employ and Deliver Services To 100 Homeless Individuals, October 2016,
/fss/provdrs/emerg/news/2016/october/mayor-emanuel-announces-new-program-to-employ-and-
opportunities and supportive services. Id. The program engages panhandlers and provides them
with an alternative avenue to earn a basic wage and support that will help them transition into
housing. Id. The City modeled their program after a successful effort in Albuquerque, NM that
allows an agency to dispatch work vans to targeted areas of the city with a large concentration of
panhandlers. Id. The panhandlers are approached and offered an opportunity to earn $55 for
labor on projects including cleanup and maintenance of vacant lots, abandoned properties, and
trash collection near expressways. Id. Through the pilot program in Chicago, each participant
will be eligible to earn up to $600 annually and receive meals, transportation, behavioral health
services, job preparedness training, healthcare screenings, hygiene care, and interim housing. Id.
The City will employ two case managers to staff the program, with oversight by a program
supervisor. Id. In order to fund this program, the Mayors ordinance to regulate house sharing
companies, like Airbnb took effect in July 2017. Id. This ordinance creates a 4% surcharge on
house sharing which has already raised $500,000 to be reinvested in homeless prevention
initiatives. Id. Mayor Emanuel recently released the success of the program, and stated the pilot
program has already served 225 individuals. City of Chicago, Mayor Emanuel Doubles Day
For Change Homeless Pilot Program, Office of the Mayor Press Release, March 2017,
has since made this program a permanent fixture. While this program has increased in size and
has allowed employment opportunities for hundreds of homeless, it still does not provide
affordable housing opportunities for the homeless. It is a solution that can provide modest wages
and help some panhandlers and homeless find housing, but it is not a permanent solution. The
homeless still need services to address underlying problems of addiction, abuse, and mental
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health. While this program is a good start, it still does not provide enough resources and
Further, Alderman Ed Burke of the 14th District in the City of Chicago, recently
introduced a resolution for the city to consider building tiny houses for the homeless. Kim
Janssen, Ed Burke suggests tiny houses for Chicago homeless, May 2017, Chicago Tribune,
Portland, Oregon, Berkeley, California, and Seattle, Washington. Id. Alderman Burke proposes
this out-of-the-box solution to provide more housing for Chicagos homeless population. Id. This
new idea also has the City and the Catholic Charities looking into different zoning issues. Id. In
addition, each tiny house would cost upwards of $2,000 to build. Id. While this solution provides
an innovative way to create more housing, it still does not create a permanent solution for the
homeless nor does it provide the adequate resources the homeless need to help underlying issues.
The above alternatives to help solve homelessness are all steps in the right direction, but
it will take more than just the City of Chicago to contribute to ending homelessness. First,
creating a citation for aggressive panhandling only adds to the problem, as those with no income
cannot pay the fine. Further, the Day for Change program offers a great short-term solution to
provide jobs to panhandlers and setting up other resources, but it does not offer a permanent
solution and costs the city a significant amount of money as $500,000 has already been used on
the program from revenue on the tax on house sharing. In addition, the creation of tiny houses
provides housing, but does not address any underlying problems that can cause homelessness.
Each homeless individual has different needs and the City needs to create services to address
The creation of a text-to-give fund allows the City of Chicago to take donations from
every Chicagoan and invest it directly towards resources and housing efforts that help
homelessness. Instead of giving money directly to the homeless, each person will be able to
contribute to a homeless shelter to provide more resources so that no one needs to be turned
away. There are also minimal costs to the City of Chicago. First, the Fund will collect additional
money to match each donation by allocating the money from housing violation penalties to be
put towards the Fund. Further, the City of Chicago could also use money from the 4% tax on
house sharing, as that money is allocated to homeless services as well. In addition, the benefit of
the creation of the Home Fund is that the money will be coming in from both Chicagoans and the
City, allowing two sources of funding to increase resources for homelessness. This will benefit
many different non-profits in Chicago. Homelessness is a problem that effects both families and
children and the money raised from the HOME Fund will contribute to non-profits that dedicate
their resources to both children and families in hopes of reducing homelessness and providing
To measure the success of this Fund, the City will continue to conduct surveys of
homelessness to determine how many people are receiving and benefiting from services at
nonprofits and homeless shelters. Further, the City will be able to determine how many donations
they are receiving and how much money is contributed to different agencies throughout Chicago.
The success of this program will be determined by how many donations are made and how the
money can be dispersed throughout different Chicagoland shelters. The City will also have to
determine how much is needed to match each donation. This initiative will be successful if the
City is able to provide more funds to hundreds of nonprofits and spend the money on social
services needed to fix those individuals who need help. The success of this program will not
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come from how much is donated, but from how the funds can be deposited to help different
shelters provide services to those in need. Many do not choose to be homeless, and success will
come from the stories of those who are able to get back on their feet with money donated from
In conclusion, homelessness is a vast problem that effects men, women, and children
throughout the United States. The City of Chicago needs all of their citizens to help. With the
Home Fund, a text-to-give campaign will help provide more resources and housing for homeless
in Chicago. Homelessness is a wide-ranging problem and creating more resources with a creative
solution can help many more nonprofits receive the funding they need to help more people. With
this policy in place, the City of Chicago will have doubled its efforts to fight homelessness. This
is a low cost and highly beneficial solution that will make a strong impact and allow long term
solutions so that lack of resources and lack of funding are not reasons that homeless shelters have
to turn people away. Every Chicagoan can show they care and make a difference.