Federal Support for Providing Housing to Individuals Experiencing Domestic Violence
link to page 1 
July 6, 2020
Federal Support for Providing Housing to Individuals
Experiencing Domestic Violence
Introduction
HHS Programs
Domestic violence (DV) affects millions of people in the
HHS administers programs authorized under FVPSA. The
United States each year. In 2015, the Centers for Disease
law focuses on providing temporary shelter and services for
Control and Prevention reported that that an estimated 12
victims, as well as supporting children exposed to domestic
million adult women and men experienced contact sexual
and teen dating violence. The majority of FVPSA
violence, physical violence, and/or stalking by an intimate
appropriations are allocated for formula grants, which fund
partner in the year preceding the survey. Reports from some
(1) states, territories, and tribes that subgrant most funds to
victim organizations and law enforcement agencies
DV organizations that provide shelter and services; (2) state
indicated an uptick in DV during the COVID-19 pandemic.
DV coalitions; (3) training and technical assistance; and (4)
administrative and research activities. Original FY2020
Individuals who experience DV are especially vulnerable to
appropriations for the formula grants were $175 million
housing instability and financial challenges. Housing
(P.L. 116-94), and additional FY2020 funding of $45
instability can include having difficulty paying rent or a
million was provided to respond to the COVID-19 public
mortgage, being denied housing because of past credit or
health emergency (P.L. 116-136).
rental history problems, facing threats of eviction, living in
over-crowded conditions, or experiencing homelessness. A
The FVPSA statute and regulations specify a variety of
one-day census count in September 2019 of about 1,700
emergency shelter or short-term housing that can be funded:
DV programs (out of nearly 1,900 nationally) indicated that
rental subsidies and temporary lodging in individual units
the programs provided 43,000 adult and child victims of
such as apartments, safe homes, and hotel or motel
DV with short-term emergency shelters, transitional
vouchers. In addition, funds can be used for locating and
housing (a temporary accommodation between emergency
securing safe and affordable permanent housing and
shelter and longer-term housing), or other housing. On that
providing homelessness prevention services. Subgrantees
same day, these programs lacked the capacity to provide
that offer shelter must also provide support services, such as
housing to nearly 8,000 adult and child victims. Separately,
counseling and case management. Figure 1 shows the
a 2008 Department of Justice-funded study of 3,400
number of individuals who have received shelter under
residents in domestic violence shelter programs identified
FVPSA-funded DV programs and the number of requests
safety (85% of residents) and affordable housing (83% of
for shelter that were unmet due to lack of capacity. The
residents) as their two primary needs.
number of residential clients remained fairly stable over
FY2014-FY2018, but the number of unmet requests
Overview of Federal Supports
increased. For more information, see CRS Report R42838.
Three federal departments primarily address the housing
Figure 1. Residential Clients and Unmet Requests for
needs of DV victims. The Departments of Health and
Shelter at FVPSA-Funded Shelters, FY2014-FY2018
Human Services (HHS), Justice (DOJ), and Housing and
Urban Development (HUD) administer multiple programs
that support various types of housing for DV victims. Some
programs are formula grant programs for states, territories,
and tribes; others are competitive grant programs for
organizations that provide housing services.
The populations served vary for these programs. For
example, programs carried out under HHS’s Family
Violence Prevention and Services Act (FVPSA) and DOJ’s
Violence Against Women Act (VAWA) support victims
and survivors of DV and dating violence (these terms are
defined in VAWA), while HUD programs support homeless
individuals. Together, HHS, DOJ, and HUD fund the
Domestic Violence Housing Technical Assistance
Source: Created by CRS using data from HHS, Administration for
Consortium through the Safe Housing Partnership. The
Children and Families Justification of Estimates, FY2018-FY2021.
consortium provides technical assistance to housing and
DV service providers on housing issues for DV victims and
DOJ Programs
survivors.
The DOJ Office on Violence Against Women (OVW) and
the Office for Victims of Crime (OVC) administer grant
https://crsreports.congress.gov
Federal Support for Providing Housing to Individuals Experiencing Domestic Violence
programs that support housing needs of DV victims. OVW
from crime, and temporary lodging is an allowable expense.
programs are authorized by VAWA, and OVC programs
States and territories may further determine the uses of this
are authorized by the Victims of Crime Act (VOCA).
funding. In FY2018, 1.02 million individuals received
housing/shelter assistance with Victim Assistance funds.
VAWA
The number of individuals compensated for housing
VAWA programs focus on DV, sexual assault, dating
expenses using Victim Compensation funds is not available.
violence, stalking, and sometimes additional crimes.
For more information, see CRS Report R42672.
VAWA grant programs address the criminal justice system
and social service responses to these crimes, and certain
HUD Homeless Programs
programs address prevention as well. Among other purpose
Individuals and families who are fleeing or attempting to
areas, several programs support transitional housing for DV
flee their homes due to DV, dating violence, sexual assault,
victims and their children. One program, the Transitional
or stalking may be considered homeless according to the
Housing Assistance Grants for Victims of Domestic
definition used for HUD homeless programs if they lack
Violence, Dating Violence, Sexual Assault and Stalking
resources or support networks to obtain other permanent
Program, solely supports housing needs. It supports
housing. Two HUD grant programs provide housing and
organizations that provide 6 to 24 months of transitional
services for people experiencing homelessness. For more
housing with support s ervices for victims who are homeless
information, see CRS Report RL33764.
or in need of transitional housing due to DV, dating
violence, sexual assault, or stalking, and for whom
The Continuum of Care (CoC) Program
emergency shelter services or other crisis intervention
CoC program funds are available for transitional housing,
services are unavailable or insufficient. FY2020
rapid rehousing, and permanent supportive housing for
appropriations for this program were $37 million (P.L. 116-
people experiencing homelessness. Funds are distributed
93). Other VAWA programs that support housing (either
competitively, and organizations serving people
short-term emergency or transitional) needs of victims,
experiencing DV may apply for grants as part of their
among other activities, include the following:
community application process, also called the Continuum
of Care. HUD does not break out funding for DV
STOP Violence Against Women Formula Grant
organizations receiving grants through the CoC program.
Program;
However, appropriation acts for FY2018 through FY2020
Enhanced Training and Services to End Violence
have included a set-aside within the CoC program of $50
Against and Abuse of Women Later in Life;
million per year for rapid rehousing projects serving people
Grants to Enhance Culturally Specific Services for
experiencing DV. Funds are used for short- to medium-term
Victims of DV, Dating Violence, Sexual Assault, and
rental assistance (up to 24 months), together with
Stalking;
supportive services.
Rural Sexual Assault, DV, Dating Violence, and
Emergency Solutions Grants (ESG)
Stalking Assistance;
ESG funds are distributed via formula to states, localities,
Grants to Indian Tribal Governments;
and territories, which can then subgrant funds to nonprofit
Grants for Outreach and Services to Underserved
organizations, public housing agencies, and local
Populations; and
redevelopment authorities. Congress appropriated $4 billion
for ESG in response to the COVID-19 pandemic (P.L. 116-
Grants to Prevent and Respond to DV, Dating Violence,
136). ESG funds can be used to support the costs of
Sexual Assault, and Stalking Against Children and
shelters, including hotel and motel rooms; for supportive
Youth Program.
services; and for short- and medium-term rental assistance
In 2016, these programs supported 4.21 million housing bed
and stabilization services (such as utility costs, credit repair,
nights. For more information, see CRS Report 45410.
and help with moving costs) for people who become
homeless. (HUD does not break out funding for DV
VOCA
organizations receiving grants through ESG.)
VOCA programs support crime victims in states, territories,
and tribes. The primary programs through which VOCA
ESG-funded organizations can also assist people who are at
supports DV victims are the Victim Assistance and Victim
risk of homelessness through rental assistance and
Compensation formula grant programs. In FY2020, $1.80
stabilization services. The term at risk of homelessness
billion was allocated for these programs. Among other
includes individuals and families who are considered
purpose areas, these programs may be used to support
homeless under other federal definitions of homelessness,
transitional housing or temporary lodging for DV victims
including VAWA. The VAWA definition of homelessness
and their children. States, territories, and tribes provide
includes people sharing housing due to loss of housing or
Victim Assistance funds to organizations that provide direct
other economic hardship.
services to crime victims, which may include DV shelters
as well as public housing authorities that assist crime
Adrienne L. Fernandes -Alcantara, Specialist in Social
victims. Further, funds may be provided to nursing homes
Policy
for the purpose of emergency, short-term shelter for elder
Libby Perl, Specialist in Housing Policy
abuse victims for whom no other safe, short-term residence
Lisa N. Sacco, Analyst in Illicit Drugs and Crime Policy
is available. States and territories use Victim Compensation
funds to compensate victims directly for costs resulting
IF11592
https://crsreports.congress.gov
Federal Support for Providing Housing to Individuals Experiencing Domestic Violence
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permissio n of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11592 · VERSION 1 · NEW
July 6, 2020
Federal Support for Providing Housing to Individuals
Experiencing Domestic Violence
Introduction
HHS Programs
Domestic violence (DV) affects millions of people in the
HHS administers programs authorized under FVPSA. The
United States each year. In 2015, the Centers for Disease
law focuses on providing temporary shelter and services for
Control and Prevention reported that that an estimated 12
victims, as well as supporting children exposed to domestic
million adult women and men experienced contact sexual
and teen dating violence. The majority of FVPSA
violence, physical violence, and/or stalking by an intimate
appropriations are allocated for formula grants, which fund
partner in the year preceding the survey. Reports from some
(1) states, territories, and tribes that subgrant most funds to
victim organizations and law enforcement agencies
DV organizations that provide shelter and services; (2) state
indicated an uptick in DV during the COVID-19 pandemic.
DV coalitions; (3) training and technical assistance; and (4)
administrative and research activities. Original FY2020
Individuals who experience DV are especially vulnerable to
appropriations for the formula grants were $175 million
housing instability and financial challenges. Housing
(P.L. 116-94), and additional FY2020 funding of $45
instability can include having difficulty paying rent or a
million was provided to respond to the COVID-19 public
mortgage, being denied housing because of past credit or
health emergency (P.L. 116-136).
rental history problems, facing threats of eviction, living in
over-crowded conditions, or experiencing homelessness. A
The FVPSA statute and regulations specify a variety of
one-day census count in September 2019 of about 1,700
emergency shelter or short-term housing that can be funded:
DV programs (out of nearly 1,900 nationally) indicated that
rental subsidies and temporary lodging in individual units
the programs provided 43,000 adult and child victims of
such as apartments, safe homes, and hotel or motel
DV with short-term emergency shelters, transitional
vouchers. In addition, funds can be used for locating and
housing (a temporary accommodation between emergency
securing safe and affordable permanent housing and
shelter and longer-term housing), or other housing. On that
providing homelessness prevention services. Subgrantees
same day, these programs lacked the capacity to provide
that offer shelter must also provide support services, such as
housing to nearly 8,000 adult and child victims. Separately,
counseling and case management. Figure 1 shows the
a 2008 Department of Justice-funded study of 3,400
number of individuals who have received shelter under
residents in domestic violence shelter programs identified
FVPSA-funded DV programs and the number of requests
safety (85% of residents) and affordable housing (83% of
for shelter that were unmet due to lack of capacity. The
residents) as their two primary needs.
number of residential clients remained fairly stable over
FY2014-FY2018, but the number of unmet requests
Overview of Federal Supports
increased. For more information, see CRS Report R42838.
Three federal departments primarily address the housing
Figure 1. Residential Clients and Unmet Requests for
needs of DV victims. The Departments of Health and
Shelter at FVPSA-Funded Shelters, FY2014-FY2018
Human Services (HHS), Justice (DOJ), and Housing and
Urban Development (HUD) administer multiple programs
that support various types of housing for DV victims. Some
programs are formula grant programs for states, territories,
and tribes; others are competitive grant programs for
organizations that provide housing services.
The populations served vary for these programs. For
example, programs carried out under HHS’s Family
Violence Prevention and Services Act (FVPSA) and DOJ’s
Violence Against Women Act (VAWA) support victims
and survivors of DV and dating violence (these terms are
defined in VAWA), while HUD programs support homeless
individuals. Together, HHS, DOJ, and HUD fund the
Domestic Violence Housing Technical Assistance
Source: Created by CRS using data from HHS, Administration for
Consortium through the Safe Housing Partnership. The
Children and Families Justification of Estimates, FY2018-FY2021.
consortium provides technical assistance to housing and
DV service providers on housing issues for DV victims and
DOJ Programs
survivors.
The DOJ Office on Violence Against Women (OVW) and
the Office for Victims of Crime (OVC) administer grant
https://crsreports.congress.gov
Federal Support for Providing Housing to Individuals Experiencing Domestic Violence
programs that support housing needs of DV victims. OVW
from crime, and temporary lodging is an allowable expense.
programs are authorized by VAWA, and OVC programs
States and territories may further determine the uses of this
are authorized by the Victims of Crime Act (VOCA).
funding. In FY2018, 1.02 million individuals received
housing/shelter assistance with Victim Assistance funds.
VAWA
The number of individuals compensated for housing
VAWA programs focus on DV, sexual assault, dating
expenses using Victim Compensation funds is not available.
violence, stalking, and sometimes additional crimes.
For more information, see CRS Report R42672.
VAWA grant programs address the criminal justice system
and social service responses to these crimes, and certain
HUD Homeless Programs
programs address prevention as well. Among other purpose
Individuals and families who are fleeing or attempting to
areas, several programs support transitional housing for DV
flee their homes due to DV, dating violence, sexual assault,
victims and their children. One program, the Transitional
or stalking may be considered homeless according to the
Housing Assistance Grants for Victims of Domestic
definition used for HUD homeless programs if they lack
Violence, Dating Violence, Sexual Assault and Stalking
resources or support networks to obtain other permanent
Program, solely supports housing needs. It supports
housing. Two HUD grant programs provide housing and
organizations that provide 6 to 24 months of transitional
services for people experiencing homelessness. For more
housing with support s ervices for victims who are homeless
information, see CRS Report RL33764.
or in need of transitional housing due to DV, dating
violence, sexual assault, or stalking, and for whom
The Continuum of Care (CoC) Program
emergency shelter services or other crisis intervention
CoC program funds are available for transitional housing,
services are unavailable or insufficient. FY2020
rapid rehousing, and permanent supportive housing for
appropriations for this program were $37 million (P.L. 116-
people experiencing homelessness. Funds are distributed
93). Other VAWA programs that support housing (either
competitively, and organizations serving people
short-term emergency or transitional) needs of victims,
experiencing DV may apply for grants as part of their
among other activities, include the following:
community application process, also called the Continuum
of Care. HUD does not break out funding for DV
STOP Violence Against Women Formula Grant
organizations receiving grants through the CoC program.
Program;
However, appropriation acts for FY2018 through FY2020
Enhanced Training and Services to End Violence
have included a set-aside within the CoC program of $50
Against and Abuse of Women Later in Life;
million per year for rapid rehousing projects serving people
Grants to Enhance Culturally Specific Services for
experiencing DV. Funds are used for short- to medium-term
Victims of DV, Dating Violence, Sexual Assault, and
rental assistance (up to 24 months), together with
Stalking;
supportive services.
Rural Sexual Assault, DV, Dating Violence, and
Emergency Solutions Grants (ESG)
Stalking Assistance;
ESG funds are distributed via formula to states, localities,
Grants to Indian Tribal Governments;
and territories, which can then subgrant funds to nonprofit
Grants for Outreach and Services to Underserved
organizations, public housing agencies, and local
Populations; and
redevelopment authorities. Congress appropriated $4 billion
for ESG in response to the COVID-19 pandemic (P.L. 116-
Grants to Prevent and Respond to DV, Dating Violence,
136). ESG funds can be used to support the costs of
Sexual Assault, and Stalking Against Children and
shelters, including hotel and motel rooms; for supportive
Youth Program.
services; and for short- and medium-term rental assistance
In 2016, these programs supported 4.21 million housing bed
and stabilization services (such as utility costs, credit repair,
nights. For more information, see CRS Report 45410.
and help with moving costs) for people who become
homeless. (HUD does not break out funding for DV
VOCA
organizations receiving grants through ESG.)
VOCA programs support crime victims in states, territories,
and tribes. The primary programs through which VOCA
ESG-funded organizations can also assist people who are at
supports DV victims are the Victim Assistance and Victim
risk of homelessness through rental assistance and
Compensation formula grant programs. In FY2020, $1.80
stabilization services. The term at risk of homelessness
billion was allocated for these programs. Among other
includes individuals and families who are considered
purpose areas, these programs may be used to support
homeless under other federal definitions of homelessness,
transitional housing or temporary lodging for DV victims
including VAWA. The VAWA definition of homelessness
and their children. States, territories, and tribes provide
includes people sharing housing due to loss of housing or
Victim Assistance funds to organizations that provide direct
other economic hardship.
services to crime victims, which may include DV shelters
as well as public housing authorities that assist crime
Adrienne L. Fernandes -Alcantara, Specialist in Social
victims. Further, funds may be provided to nursing homes
Policy
for the purpose of emergency, short-term shelter for elder
Libby Perl, Specialist in Housing Policy
abuse victims for whom no other safe, short-term residence
Lisa N. Sacco, Analyst in Illicit Drugs and Crime Policy
is available. States and territories use Victim Compensation
funds to compensate victims directly for costs resulting
IF11592
https://crsreports.congress.gov
Federal Support for Providing Housing to Individuals Experiencing Domestic Violence
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permissio n of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11592 · VERSION 1 · NEW