[Federal Register Volume 59, Number 19 (Friday, January 28, 1994)]
[Unknown Section]
[Page ]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-1857]
[Federal Register: January 28, 1994]
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DEPARTMENT OF HEALTH AND HUMAN SERVICES
Runaway and Homeless Youth Program Proposed Priorities for Fiscal
Year 1994
AGENCY: Administration on Children, Youth and Families (ACYF),
Administration for Children and Families (ACF), HHS.
ACTION: Notice of proposed fiscal year 1994 runaway and homeless youth
program priorities for the administration for children and families.
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SUMMARY: The Runaway and Homeless Youth Act requires the Secretary to
publish annually, for public comment, a proposed plan specifying
priorities the Department will follow in awarding grants and contracts
under the Act. The final priorities selected will take into
consideration the comments an recommendations received from the public
in response to this notice.
The public, particularly those knowledgeable about and experienced
in providing services to runaway and homeless youth, are urged to
respond. The actual solicitations for grant applications will be
published at later dates in the Federal Register. No proposals, concept
papers or other forms of application should be submitted at this time.
DATES: To be considered, comments must be received no later than March
14, 1994.
ADDRESSES: Please address comments to: Olivia A. Golden, Commissioner,
Administration on Children, Youth and Families. Attention: Family and
Youth Services Bureau, P.O. Box 1182, Washington, DC 20013.
SUPPLEMENTARY INFORMATION:
I. Organization, Mission and Goals of the Family and Youth Services
Bureau
The Family and Youth Services Bureau (FYSB) is a component of the
Administration on Children, Youth and Families (ACYF) in the
Administration for Children and Families (ACF). The Bureau administers
five Federal programs dealing with children, youth and families:
(1) The Runaway and Homeless Youth (Basic Center) Program (RHYP),
(2) The Transitional Living Program for Homeless Youth (TLP),
(3) The Drug Abuse Prevention Program for Runaway and Homeless Youth
(DAPP),
(4) The Youth Gang Drug Prevention Program (YGDPP), and
(5) The Family Resource and Support Program (FRSP).
The mission of FYSB is to provide national leadership on youth
issues and to empower individuals and organizations to provide
effective, comprehensive services for at-risk youth and their families,
ensuring the safety and maximizing the stability and long-term self-
sufficiency of the youth.
Two of the FYSB programs listed above, the Runaway and Homeless
Youth (Basic Center) Program and the Transitional Living Program for
Homeless Youth, are authorized under the Runaway and Homeless Youth Act
(Title III of the Juvenile Justice and Delinquency Prevention Act of
1974, as amended, hereinafter cited as ``the Act'') and are the subject
of the priorities proposed in this notice.
The Act specifically authorizes the Secretary to make grants to
entities that establish and operate local runaway and homeless youth
centers (Basic Centers) to address the immediate needs of at-risk
youth. Currently, 348 such projects are being funded. The Act also
authorizes activities that support the local centers, and that increase
knowledge about the conditions of runaway and homeless youth and their
families.
The Act further authorizes the Secretary to make grants to entities
that establish and operate Transitional Living projects for homeless
youth to enable the youth to become self-sufficient and to avoid long-
term dependency on social services. Currently, 73 such projects are
being funded.
The Act also authorizes financial support for:
A National Communications System (NCS, a toll-free 25-hour
runaway hotline) which serves as a neutral channel of communication
between at-risk youth and their families and as a source of referral to
needed services;
Grants to statewide and regional non-profit organizations
for the provision of Training and Technical Assistance (T&TA) to
agencies and organizations eligible to establish and operate runaway
and homeless youth centers; and
Grants to conduct research, demonstration, and evaluation
projects.
Annual Program Priorities. Sections 384(a) and 384(b) of the Act
instruct the Secretary to develop for each fiscal year, and to publish
annually in the Federal Register for public comment, a proposed plan
specifying the priorities the Department will follow in making grants
under the Basic Center and the Transitional Living Programs. The
Secretary is further instructed to take into consideration the comments
received in developing and publishing the subsequent plan specifying
the final fiscal year priorities. This notice constitutes the
Department's proposed priorities in these two program areas for fiscal
year (FY) 1994.
No acknowledgement will be made of the comments received in
response to this notice, but all comments received by the deadline will
be considered in preparing the runaway and homeless youth final
priorities. Final priorities will be published in the Federal Register
at the time of solicitation of grant applications.
One program announcement soliciting applications for both Basic
Center Program grants and Transitional Living Program grants will
appear in the Federal Register as in previous years. Because all
current grants to carry out training and technical assistance (T&TA)
activities will expire this fiscal year, the announcement will also
request proposals to provide T&TA to staff of FYSB-funded projects.
Finally, the announcement will solicit grant proposals to analyze and
interpret the considerable data that are being produced by the Runaway
and Homeless Youth Management Information System, the Runaway and
Homeless Youth Monitoring System, a number of Runaway and Homeless
Youth Evaluation Studies, and recent Research and Demonstration
projects. Copies of the announcement will be sent to all persons who
comment on these proposed priorities.
The current grant to manage the National Communication System also
expires this fiscal year. A separate Federal Register announcement will
be published soliciting applications to manage the National
Communications System.
II. Priorities for Ongoing Direct Service Programs
A. Priorities for Basic Centers
Approximately 350 Basic Center grants, of which about two-thirds
will be non-competitive continuations and about one-third competitive
new starts, will be funded in FY 1994 to support organizations which
provide services to fulfill the four major goals of the Runaway and
Homeless Youth Program (RHYP): alleviating the problems of runaway and
homeless youth; reuniting youth with their families; strengthening
family relationships; and helping youth decide upon a future course of
action.
The goals of the RHYP are achieved through the Basic Centers, which
provide services in support of the immediate needs (temporary shelter,
food, clothing, counseling, and related services) of runaway or
homeless youth and their families in a manner which is outside the law
enforcement system, the child welfare system, the mental health system,
and the juvenile justice system. Further, the Basic Centers provide
services, directly and through referrals, to promote the long-term
stability and safety of such youth.
Funds for Basic Center grants are allotted annually among the
States and other qualifying jurisdictions on the basis of their
relative populations of individuals who are less than 18 years of age.
For the past several years, Basic Center grants have been awarded for
three-year project periods. Approximately one-third of the Basic Center
grants expire each year, requiring these agencies to compete for new
awards. The remaining two-thirds of the Basic Center grants receive
non-competitive continuation awards. Within any given State, in
consequence, individual grantees may fall within any one of three
different funding cycles: new starts, second-year continuations, and
third-year continuations. In FY 1994, this cyclical funding pattern
will be continued, assuming satisfactory performance on the part of
current grantees and the availability of funds. Thus, approximately
two-thirds of the current grantees will be awarded noncompetitive
continuation funds, and the remaining grantees (those whose grant
periods expire in FY 1994) will have the opportunity to submit new
competitive applications. All other eligible youth-serving agencies not
holding current awards may also apply for these new competitive funds.
Section 385(a)(2) of the Act requires that not less than 90 percent
of the funds appropriated under Part A (The Runaway and Homeless Youth
Grant Act) be used to establish and strengthen runaway and homeless
youth Basic Centers. Total funding under Part A of the Act for FY 1994
is expected to be approximately $36.1 million. Approximately $32.5
million will be allocated to the Basic Centers.
An announcement of the availability of funds for the Basic Centers,
along with the instructions and forms needed to prepare and submit
applications, will be published in a Federal Register announcement as
early as possible in calendar year 1994 after the comment period ends.
B. Priorities for Transitional Living Grants
Part B, Section 321 of the Runaway and Homeless Youth Act, as
amended, authorizes grants to establish and operate Transitional Living
projects for homeless youth. This program is structured to help older
homeless youth achieve self-sufficiency and avoid long-term dependency
on social services. Transitional Living projects provide shelter,
skills training, and support services to homeless youth ages 16 through
21 for a continuous period not exceeding 18 months.
The first 45 Transitional Living Program (TLP) grants were added in
September 1990 for three-year project periods. An additional 32 grants
were awarded in FY 1991 and 10 grants in FY 1992, also for three-year
project periods. All funds available under this program in FY 1993 were
awarded in the form of non-competitive continuation awards to then-
ongoing grantees.
In order to award new TLP grants as early as possible in FY 1994,
however, an open competition was held in the summer of calendar year
1993 for new awards to be supported with FY 1994 funds. Project periods
of the new grants were to begin on October 1, 1994, or as soon
thereafter as funds were available. This was to allow grantees with
project periods ending in September 1994 to compete for new grants and
to continue their existing projects with minimal disruption of services
if they were successful in the competition.
Thirty-two new TLP grants were awarded following the competition,
with starting dates on or after October 1, 1993 (the first day of FY
1994). First-year funding for these projects totaled approximately $6.0
million. It is anticipated that remaining FY 1994 TLP funds will be
awarded to continuation grantees initially funded in earlier years.
Inasmuch as funds for additional new-start TLP grants will probably
be available in FY 1995, an open competition will be held in the summer
of calendar year 1994 for new awards to be supported with FY 1995
funds. Project periods of these new awards will begin no sooner than
October 1, 1994. It is anticipated that approximately $6.0 million will
be available for these new grants in FY 1995.
C. Priorities for the National Communications System
Part C, Section 331 of the Runaway and Homeless Youth Act, as
amended, mandates support for a National Communications System to
assist runaway and homeless youth in communicating with their families
and with service providers. In FY 1991, a three-year grant was awarded
to the National Runaway Switchboard, Inc., in Chicago, Illinois, to
operate the system. This grant will expire in February 1994. An
announcement soliciting competing grant applications to operate the
system for five years will be published in the Federal Register late in
1993 or early in 1994. Priority will be given to applicants having
experience in providing telephone services to runaway and homeless
youth. It is anticipated that $826,900 in first-year funds will be
awarded to the grantee in FY 1994.
III. Support Services for Runaway and Homeless Youth Programs
A. Training and Technical Assistance
Part D, Section 342 of the Act authorizes the Department to make
grants to statewide and regional nonprofit organizations to provide
training and technical assistance (T&TA) to organizations that are
eligible to receive service grants under the Act. Organizations
eligible to receive this T&TA include the Basic Centers authorized
under Part A of the Act and the Transitional Living grantees authorized
under Part B. In addition, Section 3511 of the Anti-Drug Abuse Act of
1988, which authorized the Drug Abuse Prevention Program for Runaway
and Homeless Youth (DAPP), authorizes support for T&TA to runaway and
homeless youth service providers. The purpose of this T&TA is to
strengthen the programs and to enhance the knowledge and skills of
youth service workers.
In FY 1991, the Family and Youth Services Bureau awarded ten
Cooperative Agreements, one in each of the ten Federal Regions, to
provide T&TA to agencies funded under the three Federal programs for
runaway and homeless youth (the Basic Center Program, the Transitional
Living Program, and the Drug Abuse Prevention Program). Each
Cooperative Agreement was unique, being based on the characteristics
and different T&TA needs in the respective Regions. Each of the
Cooperative Agreements had a three-year project period that will expire
in FY 1994.
An announcement of the availability of funds for cooperative
agreements to provide T&TA to eligible grantees, along with
instructions and forms needed to prepare and submit applications, will
be published in the Federal Register early in 1994. Earlier cooperative
agreements allowed support for networking and membership efforts. We
are proposing that these activities not be continued under the new
agreements. Instead, we are proposing that the agreements provide for
T&TA focused on findings resulting from the monitoring of runaway and
homeless youth grantees. Grantee project periods will be for five
years, and approximately $1.5 million in first-year funds will be
available in FY 1994.
B. National Clearinghouse on Runaway and Homeless Youth
In June 1992, a five-year contract was awarded by the Department to
establish and operate the National Clearinghouse on Runaway and
Homeless Youth. The purpose of the Clearinghouse is to serve as a
central information point for professionals and agencies involved in
the development and implementation of services to runaway and homeless
youth. To this end, the Clearinghouse:
(1) Collects, evaluates and maintains reports, materials and
other products regarding the provision of services to runaway and
homeless youth:
(2) Develops and disseminates reports and bibliographies useful
to the field;
(3) Identifies areas in which new or additional reports,
materials and products are needed; and
(4) Carries out other activities designed to provide the field
with the information needed to improve services to runaway and
homeless youth.
It is anticipated that non-competitive continuation funding will be
awarded to sustain the Clearinghouse in FY 1994.
C. Management Information System (MIS) Implementation
In FY 1992, a five-year contract was awarded to implement the
Runaway and Homeless Youth Management Information System (MIS) across
three FYSB programs: the Runaway and Homeless Youth Basic Center
Program, the Transitional Living Program, and the Drug Abuse Prevention
Program. The MIS data elements include identification of the program in
which the youth is enrolled, a profile on each youth served
(demographics, presenting problems, services received), and an agency
profile (agency description, program information, staff profile, and
related information). Participation in the MIS is mandatory.
In FY 1993, using an existing computer-based, information gathering
protocol, the contractor began providing training and technical
assistance to grantees in the use of the MIS. The system will become
fully operational by the end of FY 1994. The data generated by the
system will be used to produce reports and information regarding the
programs, including information for the required reports to Congress on
each of the three programs. The MIS is also designed to serve as a
management tool for FYSB and for the individual programs.
It is anticipated that continuation funding for the MIS will be
provided in FY 1994.
D. Monitoring Support for FYSB Programs
In FY 1992, FYSB awarded a contract for initial development of a
comprehensive monitoring instrument and set of site visit protocols,
including a peer-review component, for the Runaway and Homeless Youth
Basic Center Program, the Transitional Living Program, and the Drug
Abuse Prevention Program. Pilot testing of the instrument and related
protocols began in FY 1993. Also in FY 1993 an expanded contract was
awarded to provide nationwide logistical support for the peer review
monitoring process. The projected nationwide use of the new instrument
and peer review process will improve Federal oversight of the programs
and will identify program strengths and weaknesses. The findings will
also be used to direct T&TA activities and FYSB policy development.
It is anticipated that continuation funding for the logistical
contractor will be provided in FY 1994.
IV. Research and Demonstration Initiatives
Section 343 of the Act authorizes the Department to make grants to
States, localities, and private entities to carry out research,
demonstration, and service projects designed to increase knowledge
concerning and to improve services for runaway and homeless youth.
These activities are important in order to identify emerging issues and
to develop and test models which address such issues.
A. Services for Youth in Rural Areas
Because of geographic distances, low population density and, in
some cases, cultural differences, it is difficult to provide effective
services to runaway and homeless youth in rural areas. In many such
areas, scarcity of funds and other resources precludes the funding of
separate, autonomous Basic Center programs.
There is a need for innovative and effective models for the
provision of runaway and homeless youth services in rural areas,
including Indian reservations. These models would make services
accessible to youth without setting up inordinately expensive service
agencies in low populated areas.
In FY 1993, first-year funding was awarded to eight grantees to
develop such models. These grants are expected to produce written
descriptions of the proposed service models, identify issues related to
model implementation, and generate information on youth and program
outcomes. The models will also incorporate formal collaboration with
other major youth-serving agencies in the areas served.
It is anticipated that continuation funding of these eight grants
will be provided in FY 1994.
B. Analysis, Synthesis, and Interpretation of Information Concerning
Runaway and Homeless Youth Programs
Over the past few years, systems for the accumulation of new
knowledge have been developed regarding the delivery of services to
runaway and homeless youth and their families through programs
administered by FYSB. These systems currently provide, or during FY
1994 will provide, new data of considerable interest. The four main
sources of this new information are:
1. The Management Information System (MIS)
The information now being collected by the MIS includes
descriptions of FYSB's grantee agencies and detailed data on the youth
and families served, including demographic profiles, presenting
problems, services provided, and service outcomes.
2. The Monitoring System
Data now being collected through the monitoring system will
identify program strengths and weaknesses in such areas as outreach and
intake; provision of appropriate shelter, food, clothing, and
counseling; making of referrals, as needed, for health care,
employment, and educational services; family reunification and
aftercare; and program administration.
3. Evaluation Studies of FYSB Programs
Current studies nearing completion include:
``Evaluation of Runaway and Homeless Youth Programs--A
Follow-Up Study'' (FY 1991-present);
``Incidence and Prevalence of Drug Abuse Among Runaway and
Homeless Youth'' (FY 1990-present);
``Evaluation of the Transitional Living Program for
Homeless Youth'' (FY 1991-present);
``Study of the Underlying Causes of Youth Homelessness''
(1989-present); and
``National Evaluation of Home-Based Services Programs'' (FY
1992-present).
4. Research and Demonstration (R&D) Studies Supported by FYSB
Priority areas in which FYSB has recently sponsored Research and
Demonstration Studies include:
``Home-Based Services: an Alternative to Out-of-Home
Shelter'';
``Transitional Living/Independent Living Collaboration'';
``Cooperation Between Law Enforcement Agencies and Runaway
and Homeless Youth Centers'';
``Prevention and Treatment of Alcohol Abuse Among Native
American Youth in Runaway and Homeless Youth Centers'';
``Improving Minority Participation in Runaway and Homeless
Youth Centers''; and
``Developing an Urban Strategy for the Prevention of Youth
Suicide.''
There is need for analysis, synthesis, and interpretation of this
new information, leading to the identification of issues and trends in
regard to both the client population served and the services being
provided.
This information will be used to initiate a dialogue with the field
around current program requirements, practices, and concerns, and to
identify needed changes in the manner in which FYSB programs are funded
and implemented. For example, directors of FYSB grantee agencies and
Federal officials have raised a number of program and management issues
that an analysis, synthesis and interpretation of the emerging data
will help clarify and prioritize. These issues include youth
eligibility for FYSB's Runaway and Homeless Youth programs, fees for
services, consolidation of Runaway and Homeless Youth programs,
availability of physical and mental health care for runaway and
homeless youth, and State and local laws affecting runaway and homeless
youth programs.
Readers are invited to suggest other areas in which program
guidance is needed.
An announcement of the availability of grant funds for these
purposes, along with needed forms and instructions, will be published
in the Federal Register as early in 1994 as possible after the comment
period ends.
IV. Evaluation Studies
Continuation funding will be awarded to two ongoing evaluation
studies:
``Evaluation of the transitional Living Program for
Homeless Youth`` (FY 1991--present). In addition to describing the
number and characteristics of youth served by the grantees and the
types of services provided, this study is examining the
effectiveness of the program in alleviating the immediate problems
of the youth, in preparing the youth for self-sufficiency through
education and work, and in strengthening family relationships.
``Development of Manuals for ACYF to Use in Evaluating
Demonstration Projects'' (FY 1993--present). This project is
developing general and specific manuals to assist ACYF grantees in
the design and implementation of their internal program evaluations.
One of the specific manuals will be designed for FYSB grantees.
(Catalogue of Federal Domestic Assistance, Program Number 93.623,
Runaway and Homeless Youth Program, and Program Number 93.550,
Transitional Living Program for Homeless Youth.)
Dated: January 3, 1994.
Olivia A. Golden,
Commissioner, Administration on Children, Youth and Families.
[FR Doc. 94-1857 Filed 1-27-94; 8:45 am]
BILLING CODE 4184-01-M
