ACF OPRE: ACF Annual Performance Plans and Reports

7.4 YOUTH PROGRAMS

Program Description, Context, Legislative Intent and Broad Program Goals

Legislative Intent and Broad Program Goals: The Runaway and Homeless Youth (RHY) Program began in 1974 in response to concern about increasing numbers of runaway youth exposed to exploitation and the dangers of street life. It has subsequently been expanded to assist homeless youth both on a short-term basis and in making the transition to independent living. Fundamental to ACF's approach to youth programs is the concept of positive youth development, which values young people and recognizes their strengths and abilities. Youth who are nurtured by caring adults, who are given opportunities to become involved in work or education that builds their skills, who receive support and protection during challenging times, and who are actively engaged in service to the community can become valuable contributors to the quality of community life.

The Runaway and Homeless Youth Program, recently reauthorized under the Runaway and Homeless Youth Act of 1999, funds approximately 640 grants for three community-based service programs to alleviate the problems of runaway and homeless youth: the Basic Center Program (BCP), the Transitional Living Program for Homeless Youth (TLP), and the Street Outreach Program (SOP - also known as Sexual Abuse Prevention Grants). In ACF, the Family and Youth Services Bureau (FYSB) administers the RHY programs.

A request for $33 million will fund a new initiative for maternity group homes (community-based, adult-supervised group homes) for young pregnant and parenting women not more than 21 years of age who cannot live safely with their own families. This program has been proposed under the established Runaway and Homeless Youth program. These homes will provide safe, stable, nurturing environments for mothers and assist them in moving forward with their lives by providing support so they can finish school, acquire job skills, and learn to be good parents.

BCP supports local youth shelters that provide emergency shelter, food, clothing, counseling, crisis intervention, and other services for runaway and homeless youth. The shelters try to help reunite youth with their families, whenever appropriate and in the best interest of the youth, or arrange for alternative, appropriate and stable living situations.
TLP was developed in response to the longer-term needs of older homeless youth (ages 16 to 21). The TLP helps such youth develop skills and resources to promote independence and prevent future dependency on social services. Housing and a range of services are provided for up to 18 months for youth unable to return to their homes.
SOP awards additional resources to organizations serving runaway, homeless, and street youth to provide street-based outreach and education to support these young people and prevent their sexual abuse and exploitation.

Program Context: The National Network for Youth, an educational and advocacy organization whose members include many of the RHY organizations, summarizes on its website (www.nn4youth.org/runaway_and_homeless_youth.htm ) what is known about the numbers and demographics of this population:

"It is estimated that 1 to 3 million youth run away from their homes each year (U.S. General Accounting Office [GAO], 1989). A 1988 study of missing, abducted, runaway and "thrownaway" ^2/ youth reported the number of runaways and thrownaways to be 577,800 in a year (Finkelhor et al., 1990). In a more recent study by the Research Triangle Institute (RTI), an estimated 2.8 million youth living in households in the United States reported a runaway experience during the prior year (Greene et al, 1995). The size of the homeless youth population has been estimated to be approximately 300,000 young people each year (Institute for Health Policy Studies, 1995). Reports from the field indicate that the number of homeless youth is rising. While data can validate the scope of the phenomenon, debating the actual number of youth who have run away or are homeless can deflect attention from the hard reality of the dire circumstances in which many young people live....

"The ages of runaway and homeless youth generally range from 12 to 21. Government reports typically indicate that the majority of youth who run away are between 14 and 17 years of age and those who live on the streets are between 16 and 21 years of age (GAO, 1989)."

^2/ "Throw(n)away youth are young people left to fend for themselves because parents or guardians have encouraged them to leave or have abandoned them." (National Network for Youth)

The size and composition of the young homeless population varies with the economy, local and national demographics, community viability, school quality, family dynamics, and other factors. Most of the youth served in the RHY programs seek assistance because of problems with parental substance abuse, emotional, sexual and/or physical abuse and neglect, or other adolescent/parental relationship issues. The ACF Runaway and Homeless Youth (RHY) programs are able to shelter and provide face-to-face services to only about 55,000 to 75,000 youth annually (Runaway and Homeless Youth Management Information System).

Youth in high risk situations are affected by all the stresses of modern society, e.g., income inequality, economic dislocation, availability and misuse of intoxicating substances, child abuse, family instability, loss of a parent as a role model, early sexual maturation ahead of emotional or cognitive maturation, crime perpetration or victimization, the influence of predatory social groups or individuals, racism, sexism, and homophobia.

The ability to serve and achieve positive outcomes for at-risk youth is often affected by the youths' resistance to help, their distrust of authority, and the severity of the circumstances in which they are found or are trying to flee. This often invisible population is hard to track, resists contact, and is highly variable in living arrangements from month to month or day to day.

Once youth are served in an RHY center, a limited amount of reliable personal information may be obtained, assuming the youth's reticence can be overcome. Studies have found strong links between family circumstances, especially familial substance use, and the high-risk behaviors of runaway, throwaway, and homeless young people. Disruptive family conditions may be the principal reason that young people leave home. Familial substance abuse co-occurs with youth substance abuse, youth suicide attempts, and other problem behaviors. More than half of the youth interviewed during their stays in shelters reported that their parents either told them to leave or knew they were leaving and did not care.

Program Activities, Strategies and Resources:

Positive Youth Development: Over the past several years, the Family and Youth Services Bureau (FYSB) of ACF has sponsored efforts to broaden and re-focus the agency's mission upon "positive youth development." This approach encourages communities to provide the settings and services needed for young persons' healthy growth and development. The positive youth development framework identifies the stages of growth from early adolescence to adulthood, the needs associated with it, and the factors and settings which nurture it. The following key principles are important in the development of young people as they work toward a successful and productive adulthood:

Safe and stable living situations, with access to necessities such as health promotion and treatment;
A sense of competence, of being able to do something well;
A sense of usefulness, of having something to contribute;
A sense of belonging, of being part of a community and having relationships with caring adults; and
A sense of power, of having control over one's future.

Positive youth development focuses on assets rather than weaknesses (whether in normal or in high-risk situations) in redirecting youth toward healthy pathways of development. This does not mean overlooking vulnerabilities or ignoring problems. However, as Dr. Karen Pittman, a distinguished researcher in the youth field, has often said: "Problem-free is not fully prepared." (What is Youth Development: Preventing Problems or Promoting Development--Competing Priorities or Inseparable Goals?, Karen Johnson Pittman, Senior Vice President, International Youth Foundation).

As set forth in "A National Blueprint for Youth" (see discussion of this ACYF initiative in the following pages), key elements of positive youth development are:

Providing youth with safe and supportive environments;
Fostering relationships between young people and caring adults who can mentor and guide them;
Providing youth with opportunities to pursue their interests and focus on their strengths;
Supporting the development of youths' knowledge and skills in a variety of ways, including study, tutoring, sports, the arts, vocational education, and service learning;
Engaging youth as active partners and leaders who can help move communities forward;
Providing opportunities for youth to show they care - about others and about society;
Promoting healthy lifestyles and teaching positive patterns of social interaction; and
Providing a safety net in times of need.

If these factors are being addressed at the same time as basic needs--such as safety, security, good nutrition and access to health care and other essential services--are being fulfilled, young people can become not just "problem-free" but "fully prepared" to engage constructively in their communities and society.

Positive youth development principles can provide a framework for policy-making, programmatic initiatives, and design of service delivery. FYSB believes it is crucial that positive developmental opportunities be available to all young people during adolescence, a time of rapid growth and change. Adolescents need the chance to fulfill their developmental needs-intellectually, psychologically, socially, morally and ethically. Youth benefit from experiential learning and need to belong to a group, while maintaining their individuality. At the same time, they want and need adult support and interest as well as opportunities to express opinions, challenge adult assumptions, develop the ability to make appropriate choices, learn to use new skills, and make a contribution to the community around them.

Program Support: In addition to administering financial grants to the nationwide network of RHY grantees, soliciting and evaluating applications for funding and making awards accordingly, FYSB monitors RHY services to improve overall program quality and ensure the attainment of measurable results. This monitoring involves on-site visits by FYSB regional office staff (supported by trained peer reviewers) and technical assistance and training for grantees. The regional offices provide technical assistance through a network of ten provider organizations, operating under cooperative agreements, one in each region. All grantees have access to their services.

FYSB funds the National Runaway Switchboard, a twenty-four hour, seven-day hotline staffed by trained counselors who listen to and counsel youth in crisis situations and connect them with appropriate services. The Switchboard has multi-lingual service capacity. FYSB also maintains the National Clearinghouse on Families and Youth (NCFY), which provides extensive information and analytical resources to the field, publishes newsletters and other documents, and exhibits at conferences. Information dissemination also takes place through websites maintained by FYSB, NCFY, and the Switchboard. During FY 2000, FYSB also assumed responsibility for an HHS "YouthInfo" website, previously maintained by the HHS Office of the Assistant Secretary for Planning and Evaluation. This website will be integrated with the other FYSB-affiliated web pages and continue to offer information on youth issues, positive youth development, programs, and resources with HHS-wide scope and government-wide links.

During FY 1998 and 1999, FYSB worked with ACF, contractors, and partners to assure that the Runaway and Homeless Youth Management Information System (RHYMIS), the National Clearinghouse on Families and Youth, the National Runaway Switchboard, and grantee information and service systems were ready for the Y2K transition. These efforts included working with the National Switchboard to upgrade their telecommunications and voice mail system to be Y2K compliant. Previously, RHYMIS had been modified and verified to be Y2K compliant. RHY grantees were given technical assistance and guidance on meeting the Y2K challenges. No Y2K incidents were reported in the RHY universe.

Due to difficulties experienced by grantees in reporting program information through RHYMIS (discussed in more detail under "Data Verification and Validation," below), FYSB is streamlining and simplifying the system. Efforts to increase the level and accuracy of reporting have had some success but many grantees lack the trained staff to effectively answer the more than 200 detailed and complex questions in RHYMIS. (These questions also incorporate responses and data elements that are an order of magnitude more numerous than the questions alone.) During FY 2001, FYSB is continuing to modify and add resources to the RHYMIS information technology contract to create and install a new user interface based on a smaller, more relevant and practical set of questions. The questions were developed in consultation with regional staff, NCFY experts, and representatives of the runaway and homeless youth service field, all of whom welcome the simplified requirement. RHYMIS reporting frequency will be reduced from quarterly to semi-annually.

These changes will produce better data both for GPRA and for FYSB's Report to Congress, as well as providing information that grantees can use in their own jurisdictions.

Program Coordination, Partnerships and Crosscutting Issues:

On May 2, 2000, the White House held a conference on Raising Responsible and Resourceful Teenagers in the 21^st Century. FYSB played a key supporting role in this event by helping to identify participants, developing agenda concepts and handouts, hosting a local satellite viewing of the conference in Washington and with ACF regional staff around the country, and funding travel to the event by parents and youth.

During FY 2000, FYSB and ACYF held meetings, focus groups, and consultations, and developed publications and other documents based on "the National Blueprint for Positive Youth Development." ACYF and FYSB have involved other programs across ACF and HHS and worked closely with the Departments of Justice, Labor, Education, Housing and Urban Development, Agriculture, and Transportation, as well as the Corporation for National Service, to formulate and clarify common principles and objectives in positive youth development. The effort featured a half-day forum in February 2000 at the annual Symposium of the National Network for Youth (the membership association of RHY and youth-serving grantees), with audience participation by individual youth and RHY grantees, and panelists from Justice, Labor, Education, HHS, the Ford Foundation, the National Collaboration for Youth, the National Network for Youth, and the National Academy of Science. Work on the Blueprint continued throughout FY 2000 with the development of a document for eventual clearance and distribution through the world wide web and mailings by endorsing organizations. The latter are expected to include foundations active in the youth field, youth-serving organizations, intergovernmental associations, and the original partnering Federal departments. Follow-up activities could include interagency conferences on positive youth development, goal setting and performance measurement, and efforts to improve interagency coordination on program announcements, technical assistance, and research.

Since September 1998, FYSB has funded State Youth Development Collaboration Projects to develop and support innovative youth development strategies at the State level. FYSB had originally set a target of five States but was able to award funding to eight States and fund a ninth State with the help of the ACYF Children's Bureau (CB). Each of the following States receives an annual grant of $120,000, renewed in each of three years: Arizona, Colorado, Connecticut, Iowa, Maryland, Massachusetts, Nebraska, New York, and Oregon. With the support of its partner, the Children's Bureau, FYSB added four more States during FY 2001: Illinois, Indiana, Kentucky, and Louisiana. The grants enable the States to develop new, or strengthen existing, youth development infrastructures, partnerships and policies. These efforts focus on all youth, including at-risk youth such as runaway and homeless youth, youth leaving the foster care system, abused and neglected children, and other youth served by the child welfare and juvenile justice systems. Each project will be evaluated before completion.

FYSB and the ACF CB are entering the sixth year of a collaborative effort to strengthen and expand a partnership to promote the youth development philosophy and approach in services to foster care and homeless youth, with particular reference to the expanded funding under the Chaffee Independent Living Program (ILP). FYSB's TLP grantees have valuable experience in helping disadvantaged older youths transition to a healthy and productive adulthood; thus, FYSB is helping CB's ILP connect with these community resources. In April 2000, FYSB funded travel by a large number of TLP grantees to the National ILP meeting in Boston. The State Collaborations funded by Children's Bureau will focus particularly on ILP linkages.

FYSB works with various health agencies in HHS and with other public, private, and non-profit entities to encourage use of the youth development framework in providing effective services to young people. FYSB is a member of the Teen Pregnancy Prevention Working Group. FYSB collaborates with and furnishes financial support for the four HHS-funded Girl Neighborhood Power Programs to continue providing effective services for young adolescents

The National Governors Association (NGA), with foundation support and consultative assistance from FYSB and other federal agencies (DOL, DOJ, Education, HUD, etc.), has established a ten State interdisciplinary learning network of forums, meetings, and issue briefings on youth development. FYSB's own State collaboration projects offer a useful parallel and seven of the FYSB states are in the NGA network, which will last eighteen months. FYSB and NGA continue to cooperate as their respective State youth development projects unfold.

FYSB partners with youth-serving organizations, foundations and RHY grantees on an ongoing basis, for example, involving youth organizations and selected grantees in making the changes in youth services data collection described above. FYSB's influence and ability to engage the RHY grantee organizations is enhanced by the training and technical assistance network, the monitoring process, and other oversight activities. Many of these widely diverse organizations receive support from multiple sources, including other ACF grants, State child welfare funds, substance abuse prevention funds, Department of Justice funds, private non-profit support, volunteerism, and faith-based organizations. Many operate multiple programs under the same roof, serving a diverse population of youth, families, and individuals.

Coordination across programs also takes place through the regional offices. For example, the ACF West Central Hub (Dallas and Denver regions) works with the Casey Family Foundation on a demonstration project looking at effective interventions designed to strengthen families and improve parent-child relationships in the families of sheltered youth, at-risk Head Start families, emerging families (pregnant and parenting teens), and possibly the families of youth in foster care. Statistics indicate that most children placed in foster care will return to the family of origin, though it may continue to be abusive and even dangerous. The ultimate goal of this project would be the diversion of youth from foster care placement.

Another regional project called "Safe Place Trucks and Trains" is establishing a collaboration between ACF, RHY grantees, the National Highway Traffic Safety Administration, the "Safe Place" program, the Teamsters' Union, the U.S. Department of Transportation, and major trucking companies to make trucks and trains "Safe Places." Significant numbers of youth travel on the interstates, "hitchhike" from the road, or meet drivers in truck stops and rest areas where they arrange rides. These youth engage in activities that include transporting controlled substances, survival sex and "panhandling." Through this project, "over-the-road" drivers with appropriate motives and interest would be identified and trained, background checks would be performed, and drop-off sites and procedures developed.

Program-wide Performance

During FY 1999, 53,000 runaway or homeless youths were reported as being "admitted to services." These youths received basic support, such as food, shelter, clothing, transportation, and counseling services. Other services included life skills training, recreation, substance abuse prevention, education, and health care. Most youths reported psychological issues, such as depression or suicide attempts. The prospect of increased services for mental health could provide additional help for troubled individuals.

There has been a reported decrease between FY 1998 and FY 1999 in the numbers of youth "admitted to services" in RHY centers. This number probably does not represent a decrease in the actual number of youth sheltered and treated or in need for the following reasons. Currently all RHYMIS data is unreliable due to chronic low levels of grantee reporting (less than 50% reporting fully). The RHYMIS technical assistance provider has anecdotal evidence that suggests many youth were being treated at RHY agencies but not counted as "admitted to services;" many homeless youth are treated at RHY centers but not counted in RHYMIS because their services are funded by non-Federal resources (e.g., United Way funds); and many runaway and homeless youth are sheltered by non-RHY organizations or find no shelter at all and end up on the street.

Performance data details for certain measures

Researchers agree that it is nearly impossible to determine the overall number of runaway and homeless youth in the U.S. Homeless adults are hard to count and estimates vary widely. The numbers of homeless American youth, who often conceal themselves or migrate from one temporary living situation to another, are even harder to measure. A recent study by the U.S. Conference of Mayors (USCM) estimated that "unaccompanied minors" represent 7% of the total homeless population in 26 cities studied.

Based on research released in February 2000 by the Urban Institute, an estimated 3.5 million people become homeless in the course of a year. If the 7% USCM rate is applied (albeit "unscientifically") to the Urban Institute estimate, homeless unaccompanied minors could number nearly a quarter of a million. Thus, large numbers of vulnerable children in their teens could separate from their families, become homeless and be at-risk in areas not served by FYSB's limited program resources.

While the general economic well-being of the late 1990's has somewhat reduced social problems and stresses that put pressures on families and influence youth to run away or seek shelter away from home, demographics indicate the level of potential need is holding steady. Current numbers of youth remained static during the 1990's. A nearly 12% increase in the youth population may be expected over the next ten years as the larger cohort of children aged five to fourteen matures into middle and late adolescence.

Measure 7.4a Maintain the proportion of youth living in safe and appropriate settings after exiting ACF-funded services

Safe and appropriate settings after exiting FY 2000	Safe and appropriate settings after exiting FY 1999	Safe and appropriate settings after exiting FY 1998	Safe and appropriate settings after exiting FY 1997	Safe and appropriate settings after exiting FY 1996
	Females 16,709 Male 13,549 Pos Outcomes 30,258 Responses 35,276 86%	Females 28,455 Male 23,645 Pos Outcomes 52,100 Responses 64,633 81%	Females 32,815 Male 26,871 Pos Outcomes 59,686 Responses 73,225 82%	Data not available (collected through Pre-GPRA predecessor system with criteria not consistent with current collection)
Methodology: From the RHYMIS Youth Profile (composite for both BC and TLP), count all youth with "positive" youth outcomes for "Living Situation at Exit" and divide by the total number of youth served. "Positive outcomes" would be all outcomes except: on the run, on the street, in squat, correctional institute or detention center, other temporary shelter, other, do not know.

Measure 7.4e: Increase the proportion of Basic Center and Transitional Living program youth receiving peer counseling through program services.

Youth receive peer counseling services FY 2000	Youth receive peer counseling services FY 1999	Youth receive peer counseling services FY 1998	Youth receive peer counseling services FY 1997	Youth receive peer counseling services FY 1996
	Females 1,956 Male 1,617 Total Peer 3,573 Responses 29,620 12 %	Females 3,798 Male 2,903 Total Peer 6,701 Responses 55,410 12%	Females 3,645 Male 3,108 Total Peer 6,753 Response 55,382 12%	Data not available (collected through Pre-GPRA predecessor system with criteria not consistent with current collection)
Methodology: From the RHYMIS Youth Profile (composite for both BC and TLP), count the number of youth receiving "peer counseling" and divide by the total number of youth served.

Measure 7.4j: (deleted in FY 2001): Increase the proportion of ACF-supported youth programs that are using community networking and outreach activities to strengthen services.

Community networking FY 2000	Community networking FY 1999	Community networking FY 1998	Community networking FY 1997	Community networking FY 1996
	Using area services152 # grantees reporting296 51%	Using area services 229 # grantees reporting 290 79%	Using area services 232 # grantees reporting 300 77%	Data not available (collected through Pre-GPRA predecessor system with criteria not consistent with current collection)
Methodology: From the RHYMIS Agency Program Profile (composite for both BC and TLP), count the number of grantees using any (at least one) of the "area services" (outreach, promotional instructional material, language assistance services, respite care, community/educational events, training/consultation or other) and divide by the total number of grantees reporting in that period. (In this denominator, do not include the total number of grantees that were funded, only the total reporting.)

ACF failed to achieve the projected targets in all three of these measures. Until improvements to RHYMISA are fully implemented (FY 2002 will be the first full year of data), we know very little about the achievement or progress for these measures since the old RHYMIS data is incomplete (only 45% reporting level in a recent year) and unreliable on a national basis. For measure 7.4j, the current and past RHYMIS data is incomplete and an evaluation, confirmed by anecdotal evidence, indicates that there has been a significant decline in community resources available for referrals and services for RHY youth. This decline is a factor beyond the control of the RHY community. We are providing FY 1999 data (and will report FY 2000 data) but acknowledge that it is extremely unreliable.

Data Issues

Data Verification and Validation: Data sources for RHY GPRA measures previously were limited to RHYMIS. For FY 2002, data from the National Runaway Switchboard (NRS) and grantee annual reports will be added on a pilot basis. The NRS data are gleaned from records of those calls in which it is possible and appropriate for NRS staff to gather information beyond the basic facts needed to help the caller. The data are not a statistical sample of all calls received during the year, but represent over 30% of youth crisis calls logged and provide a reasonably reliable indication of the situations of many young callers.

RHYMIS is an automated and manual system with evaluation features included if the data reported are accurate and correct. The RHYMIS software has built-in validation, verification and quality assurance routines to assist grantees in producing high quality data. The RHYMIS Data Quality report may be run at any time by RHYMIS users, affording them a way to identify missing or invalid data. Additionally, a series of data validation checks occur automatically prior to each data transfer. After the contractor receives the data, they are put through an additional series of checks to assure that the format is correct and virus-free.

RHYMIS features a number of data quality checks performed interactively as users enter RHYMIS data. Improved data reliability results from instantaneous feedback provided to the users as data are entered. RHYMIS is a Windows application with a graphical interface. A dramatically streamlined version of RHYMIS is currently under development. (This work-in-progress is being dubbed "RHYMIS-LITE".) Beta testing is planned to begin in FY 2001.

For both RHYMIS and the RHYMIS-LITE system which will replace it, additional data quality checks are performed at the national level during the logging and integration processes, including an assessment of non-reports. Software is used to remove duplicate data and check for missing or erroneous data before they are integrated into the national database. The RHYMIS Technical Support team interacts with those agencies submitting problematic transfers or failing to report and works to determine their underlying source of difficulty. Grantee agencies are then able to address input problems and re-submit data before the end of the reporting period.

Compliance and completeness of reporting: Improvements in both technical and support areas of the RHYMIS software have brought increased rates of grantee compliance with data submission requirements. The RHYMIS national data submission rate has continued to increase over the past years. We believe this trend will continue as grantee agencies become increasingly aware of the many ways they can use the RHYMIS data to improve their own reporting and evaluation processes and certainly as reporting tasks are simplified.

Recent Levels of RHYMIS Reporting Compliance
	FY 1997	FY 1998	FY 1999
% of grantees who submitted in the 4^th quarter.	62%	65%	77%
% of grantees who submitted in at least one quarter.	88%	89%	95%
% of grantees who submitted in all four quarters.	39%	35%	45%

The RHYMIS technical support team has taken a proactive role in familiarizing grantee agencies with the new software and encouraging its use. Support staff continue to aid grantees experiencing difficulty with the application by completing over-the-phone training on application procedures. RHYMIS also has a web page that can be accessed from the FYSB homepage. It features downloads of the RHYMIS application, executable updates, a conversion utility, answers to frequently asked questions, information about RHYMIS Technical Support, release notes, installation guides, and reports from the National Database.

Early identification of problems with Federal transfer data is now possible with the enhanced logging and integration software. This early identification allows the RHYMIS technical support team to contact grantees and help them to determine and correct problems. Grantee agencies are then able to re-submit corrected data before the end of the reporting period and maintain submission compliance.

As FYSB streamlines the RHYMIS-LITE software and reporting requirements to focus them on information needed for GPRA and for the biannual report to Congress required by the legislation, grantees will need less time for reporting through RHYMIS-LITE and can spend that time helping youth. When the simpler, more relevant RHYMIS-LITE instrument is ready, a clear message will be sent that complete and accurate reporting is a condition of receiving RHY grant funds, a condition already highlighted in program announcements and performance standards. Program quality assurance, accountability and improved RHYMIS-LITE reporting levels are priority goals of FYSB, the RHYMIS contract, the on-site monitoring process conducted by regional staff and peer monitors, and the follow-up technical assistance program. Until then, considerable caution should be exercised in drawing conclusions from RHYMIS data submitted to date, including performance results, trends and baselines included in this plan.

Summary Table (with youth development outcome logic model):

For the FY 2002 Annual Performance Plan and the FY 2001 Revised Performance Plan, outcome domains, goals and objectives structure and several performance measures shown below have been added, revised or replaced. FY 2000 measures (including those being dropped from future plans) are reported as they appeared in the FY 2000 Revised Performance Plan, along with performance results for FY 2000 and FY 1999, but embedded in the new logic model structure. Where appropriate, outcome domains have been paired or overlapped.

Performance Measures		Targets	Actual Performance	Reference (page # in printed document)
1. Safe and Stable Living Situations: Runaway and homeless youth find safety, shelter and services that support their well-being and development into adults.
PROGRAM GOAL: Provide appropriate shelter, counseling and other support services to youth and their families in high-risk situations.
7.4a. Maintain the proportion of youth living in safe and appropriate settings after exiting ACF-funded services. NOTE: Safe and appropriate living situation at exit would be all discharge outcomes except situations such as on the run, on the street, in squat, correctional institute or detention center, other temporary shelter, other, or do not know.		FY 02: 96% FY 01: 96% FY 00: 95% FY 99: 95%	FY 02: FY 01: FY 00: 6/01 FY 99: 86% FY 98: 81% FY 97: 82%	Px. M-127
Note on "Social Indicator" 7.4b. The next measure is being presented as a pre-intervention "social indicator" which, while beyond the control of ACF, the National Switchboard, and RHY programs, could nevertheless provide valuable information about living conditions of the runaway and homeless youth population before they find safe shelters.
7.4b. Increase the proportion of runaway and homeless youth who are able to rely upon safer and more appropriate means of survival while on the street, (based on information from reports by youth calling the National Runaway Switchboard for help). (Developmental, FY 99 is tentative baseline) NOTE: "Safer means of survival" includes living with friends and relatives, using soup kitchens or shelters, or getting by on personal funds, and excludes stealing, prostitution, selling drugs, panhandling, police detention or "unknown."		FY 02: FY 01: new FY 00: N.A.	FY 02: FY 01: FY 00: 6/01 FY 99: 65%	Px M-128
2. A Feeling of Connectedness to Others, Especially Caring Adults, and to the Community: Youth have relationships with and increasing trust for caring, capable adults.
PROGRAM GOAL: Disseminate information and maintain the credibility of RHY programs and services among youth to increase the level of trust which youth feel for service providers. (7.4c and 7.4d are "pre-intervention" in nature but related to successful outreach activities.)
7.4c. Increase the proportion of youth who contact the National Runaway Switchboard (for counseling and referral to safe shelter or other services) earlier rather than later in their runaway episode (up to the first week). (Developmental; FY 99 is tentative baseline.) NOTE: This measure will suggest the success of improved outreach activities, information dissemination and other services and actions which increase youths" trust and confidence in the Switchboard and youth shelters.		FY 02: tbd FY 01: N.A.	FY 02: FY 01: FY 00: 6/01 FY 99: 63%	Px M-129
PROGRAM GOAL: Prevent or mitigate severe youth crises by providing and publicizing opportunities to seek help and receive appropriate intervention and counseling (such as the National Runaway Switchboard) before situations deteriorate and/or the youth leaves home.
7.4d. Increase the proportion of youth who call the National Runaway Switchboard when they are contemplating running away (but before they do so). (Developmental; FY 99 is tentative baseline) NOTE: The denominator would include those who call for help after having left home and/or who have become enmeshed in crisis situations.		FY 02: tbd FY 01: N.A	FY 02: FY 01: FY 00: 6/01 FY 99: 9%	Px M-129
3. A Sense of Industry and Competency; Feeling of Connectedness to Others, Especially Caring Adults, and to the Community; A Belief in Their Control over Their Fate in Life: Youth are empowered to develop into independent, contributing members of society.
PROGRAM GOAL: Increase the involvement of youth as peers in service delivery and program development.
7.4e. Increase the proportion of BCP and TLP youth receiving peer counseling through program services. (revised FY 97 baseline equals 12%) *NOTE: The target and baseline for this measure in the FY 1999 APP were not based on RHYMIS but on a different data source (an evaluation using statistical sampling methodology and not comparable with RHYMIS). For this reason, and because data will only be collected through RHYMIS, we are switching to targets based on more recent RHYMIS data. While this data also has accuracy problems, there will be a more consistent relationship between baseline and targets.		FY 02: 15% FY 01: 15% FY 00: 15% FY 99: 60%*	FY 02: FY 01: FY 00: 6/01 FY 99: 12% FY 98: 12% FY 97: 12%	Px M-130
7.4f. Increase the number of youth serving on RHY grantee organization boards and participating in program and activity design, in the following categories: (1) volunteer youth (from the community) and (2) TLP youth. (Developmental; FY 01 is tentative baseline)		FY 02 (1): tbd FY 02 (2): tbd FY 01 (1): NA FY 01 (2): NA	FY 02 (1): FY 02 (2): FY 01 (1): FY 01 (2)	Px M-130
PROGRAM GOAL: Strengthen youth in reaching their full potential socially and economically by providing opportunities that move them toward self-sufficiency.
7.4g. Increase the number of youth in the transitional living programs who have attained suitable education and housing status by the time they exit the program. (Developmental, FY 01 is tentative baseline)		FY 02: tbd FY 01: NA	FY 02: FY 01:6/01	Px M-131
7.4h. Increase the number of youth in the transitional living programs who successfully complete the program. (Developmental; FY 01 is tentative baseline) NOTE: Successful completion does not strictly depend on lasting a full eighteen months but will be defined by status at exit and other elements in the TLP section of RHYMIS-LITE.		FY 02: tbd FY 01: NA	FY 02: FY 01: 6/01	Px M-131
PROGRAM GOAL: Build partnerships across governments, with communities, and with youth to help youth develop as individuals and as citizens.
7.4i. Maintain with 13 States and youth services grantees in those States a collaboration that supports a youth development approach to services for young people, including substance abuse and teen pregnancy prevention activities and add additional States as resources becomes available. NOTE: FY 01 and 02 targets are adjusted to reflect the inclusion of additional States.		FY 02: 13 FY 01: 13 FY 00: 9 FY 99: 5	FY 02: FY 01: FY 00: 13 FY 99: 9	Px M-131
7.4j. Increase (revised FY 97 baseline equals 77%) the proportion of ACF-supported youth programs that are using community networking and outreach activities to strengthen services. NOTE on 7.4j: An evaluation, confirmed by anecdotal evidence, indicates that there has been a significant decline in community resources available for referrals and services for RHY youth. This measure has been deleted in the final revised FY 2001 plan due to difficulties in defining elements.		FY 01: deleted FY 00: 75% FY 99: 75%	FY 00: 6/01 FY 99: 51% FY 98: 79% FY 97: 77%
4. A Belief in Their Control over Their Fate in Life; A Stable Identity: Youth achieve good mental and physical health and a greater sense of optimism, empowerment and possibility.
Future possible goal development activity: The following possibilities will depend on RHYMIS redesign, available resources, and the need to maintain a manageable set of performance goals. Some of the following may replace existing goals if the result is an improved performance plan. Establish indicators, goals, and targets to measure activities in Street Outreach programs and mental, physical, and dental health services and outcomes in the TLP. Interview a sample of RHY youths for customer attitudes and perceptions before, during, and after receipt of services. Obtain capacity and need information from annual reports such as number of youth "turned away" from Basic Centers or older youth not enrolled in the TLP due to lack of facilities, services or other resources. Explore customer feedback information regarding National Switchboard and National Clearinghouse. Implement national goal setting around positive youth development principles embodied in the "National Blueprint."
Availability of FY 2000 Data: More completeresults will be available by June 2001. The current data are not accurate on a national level and our limited contract resources are responsible for designing the new system.
Total Funding (dollars in millions) See detailed Budget Linkage Table in Appendix 6 for line items included in funding totals.	FY 02: $117.1 FY 01: $ 84.1 FY 00: $ 79.2 FY 99: $ 76.5		Bx: budget just. section H Px: page # performance plan

Performance Measures for FY 2002 and Final Measures for FY 2001

Challenges: The development of goals and outcome measures for FYSB grantees is challenging for a variety of reasons. First, there is extensive variation in the types of agencies that receive funding from FYSB. These approximately 400 agencies range from large, multi-service youth and family agencies with fairly sophisticated data collection and reporting systems to smaller single-service agencies that are just beginning to develop and use management information technology to track their services and service recipients. The annual financial support from FYSB to Basic Centers varies from about $50,000 to about $160,000, with the average being around $100,000. The smaller number of Transitional Living Programs average $180,000, and range from $150,000 to $200,000. The small number of Street Outreach Programs receive approximately $80,000 each.

As of FY 2000, data from RHYMIS are submitted semi-annually by grantees but are valid only on an annualized basis. (Data vary widely from quarter to quarter due to reporting factors). Hence, little can be said with confidence about FY 2000 performance until well after the year's end.

FYSB program and reporting standards are applicable only to the subset of youth in the runaway and homeless category supported by the RHY funding. The variable level of compliance with RHYMIS reporting requirements and the ability to collect reliable performance data, both of which are discussed later in this report, are affected by these program and service delivery realities.

In looking at trends, it may be methodologically questionable to compare one year to the next in a universe of grantees that changes from year to year as some grantees drop out or are not refunded and new ones take their place in the discretionary grants competitive process. RHY grantees operate one or more of three very different FYSB programs (as well as other non-FYSB programs) and serve a constantly changing and volatile client population. For this reason, while baselines are provided for the measures, these are being reevaluated. FYSB may change from using a baseline approach to a year-to-year continuous improvement approach, but this too has limitations. The level of report completion has been far less than it should be, leading to accuracy issues. (See "Data Verification and Validation" above.) These challenges will be addressed over the next few years as the data collection process is redesigned and as program reporting changes are implemented under the new legislation.

FYSB-funded programs vary in ways that have implications for identifying and assessing outcomes. Basic Center grantees, for example, generally operate programs that serve youth for short periods of time ranging from 1 to 15 days. Determining which outcomes are relevant for these types of programs is difficult because it requires focusing on short-term, incremental and sometimes intangible shifts in youths' attitudes, family environments and conditions. In contrast, the much smaller number of Transitional Living Program grantees work with youth for up to 18 months and offer a larger range of services, allowing clearer assessments of long-term change. Street Outreach Programs are designed primarily to build youths' trust in the agency and to encourage them to seek help and obtain safer and more stable living situations. These programs sometimes reach youth in a turbulent, street-corner setting for only a few moments each week; thus, establishing appropriate outcomes for Street Outreach programs is particularly challenging. (However, intermediate results, such as distribution of hygiene, food, or information packages, while having only short-term effects in the life of a street youth, nevertheless are of intrinsic value [e.g., nutrition and a few hours of relief from hunger] and can also establish a connection of trust. Once implemented, RHYMIS-LITE will track such results.)

Another reason for the difficulty in establishing outcomes and performance measures for FYSB-funded grantees is that their limited resources are almost fully dedicated to program operations. Many youth grantees do not maintain large and sophisticated information technology resources and staff, concentrating instead on services to at-risk youth. Moreover, as mentioned, grantees are often beholden to multiple funding sources with varying requirements.

Despite these challenges, FYSB is proposing the revised FY 2001 and FY 2002 performance goals and measures. These are derived from both the legislative mandate and the youth development framework. The specific rationale for the measures in this plan is based on evaluation and research findings related to adolescents, knowledge about what is important in the lives of youth, and knowledge regarding substantive areas needing further development.

Proposed New or Revised Performance Goals for FY 2001 and 2002: During the past three years, FYSB conducted an effort to develop a final set of outcomes and measures to describe and improve the performance of grantees who operate the Runaway and Homeless Youth programs (BC, TLP, SOP). The identification of performance indicators and performance measures within a youth development logic model was based on input from a wide variety of organizations and individuals involved in youth issues. The new outcome and performance measurement logic model, effective as of the revised FY 2001 Annual Performance Plan, derives from this effort and will be based in part on data from the revised, streamlined RHYMIS-LITE, which is expected to generate greater reporting compliance and accuracy.

New data sources are being added. The National Runaway Switchboard and grantee annual reports will be simplified and integrated. Some of the new measures (measures 7.4b-d) are "pre-intervention" in nature and, while beyond or tangential to control by FYSB and its partners, nevertheless tell an important story.

Because of resource constraints, the time required for completion of RHYMIS-LITE improvements, and the complexity of the activities involved, it may be several years before a final set of measures and targets is fully in place with reliable data to continually assess the effectiveness of FYSB grantees and the improvements in safety and well-being of the youth these grantees serve. ACF anticipates having an adequate RHYMIS-LITE system installed in time for a full year of quality data beginning in FY 2002. Thus we are setting new baselines for measures ("developmental" for FY 2002) and will apply these to established measures if the data collection experience beginning in FY 2002 is more reliable than before. There will be an unavoidable discontinuity in mid-FY 2001 as grantees transition to the new system, with new questions and definitions, new features and program coverage, and deletions and consolidations of content. The discussion earlier in this chapter makes the case that the benefits of better data in the future are well worth the discontinuity with poor data in the past.

The following presentation embodies the new structure. New or developmental measures may lack specific targets at this time. These will be set after review of new data and in consultation with partners. Unchanged measures are shown as is.

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Safe and Stable Living Situations

1. YOUTH DEVELOPMENT OUTCOME: Runaway and homeless youth find safety, shelter and services that support their well-being and development into adults.

PROGRAM GOAL: 1A: Provide appropriate shelter, counseling and other support services to youth and their families in high-risk situations.

7.4a. FY 2001: Increase to 96% the proportion of youth living in safe and appropriate settings after exiting ACF-funded services. (FY 97 baseline equals 82%)

FY 2002: Maintain at 96% the proportion of youth living in safe and appropriate settings after exiting ACF-funded services. (FY 97 baseline equals 82%)

Data source: RHYMIS-LITE

NOTE: Safe and appropriate living situation at exit would be all discharge outcomes except: on the run, on the street, in squat, correctional institute or detention center, other temporary shelter, other, or do not know.

FYSB will continue to work (through the highly competitive grantee selection process, on-site monitoring reviews, training and technical assistance, information dissemination, partnerships across a range of programs, and through other means) to help RHY grantees deliver comprehensive and high quality services to youth during shelter and TLP tenure. Such services not only focus on short term vital needs such as food and shelter, but must include counseling (both individual and family), and other services which are aimed at helping youth make appropriate living choices and healthy transitions to independence and adulthood. It is of the highest importance that youth served in RHY programs are placed in appropriate living situations upon the end of their RHY stay. Follow-up services and referrals by the community-based grantee, where feasible, are an important part of this commitment.

7.4b. FY 2002: Increase to X% the proportion of runaway and homeless youth who are able to rely upon safer and more appropriate means of survival while on the street, based on information from reports by youth calling the National Runaway Switchboard for help. (developmental)

Data Source: National Runaway Switchboard

Note: "Safer means of survival" include living with friends and relatives, using soup kitchens or shelters, or personal funds and exclude stealing, prostitution, selling drugs, panhandling, police detention, or "unknown." Police detention of runaways, as a survival "alternative," is still in place in some States, but is not part of a desirable youth development outcome. This is because detention criminalizes as "status offenders" youth who may be fleeing abusive situations, is coercive, demeaning, and demoralizing and may expose young people to incarcerated adults.

Measure 7.4b is being presented as a pre-intervention "social indicator" which, while beyond the control of ACF, the National Switchboard, and RHY programs, could nevertheless provide valuable information about living conditions of the runaway and homeless youth population before they find safe shelters. This developmental measure for FY 2002 will try to capture improved street level services and other resources for homeless youth across society, prior to their accessing the RHY network. The data are based on completed or partly completed interviews with crisis callers. Not every crisis call can generate detailed information, but in many crisis calls (over 30% for this particular measure), it is appropriate and feasible for the counselor to elicit reliable information. FY 1999 is tentatively the baseline year.

The data source is from outside the network of shelter grantees and captures general information about the lives led by these youth while they are unsheltered, unsettled and at high risk. FYSB and its grantees can indirectly affect these situations through partnerships with non-RHY programs that serve the homeless and youth in particular and through emphasizing coordination of services across a community network. If FYSB and its partners are successful over the long term, there may be fewer youth running away and of those, more able to find appropriate interim refuge.

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A Feeling of Connectedness to Others, Especially Caring Adults, and to the Community

2. YOUTH DEVELOPMENT OUTCOME: Youth have relationships with and increasing trust for caring, capable adults.

PROGRAM GOAL: 2A. Disseminate information and maintain the credibility of RHY programs and services among youth to increase the level of trust youth feel for service providers.

7.4c. FY 2002: Increase to X% the proportion of youth who contact the National Runaway Switchboard (for counseling and referral to safe shelter or other services) earlier rather than later in their runaway episode (up to the first week (developmental)

Data Source: National Runaway Switchboard

This developmental measure for FY 2002, though also pre-intervention and somewhat beyond the control of FYSB and its partners, will indicate the reputation and credibility of the National Switchboard and the success of its outreach and information dissemination efforts in informing youth and increasing their trust and confidence in the Switchboard and youth shelters. In FY 1999, 40.4% of callers had been on the street for 1-2 days before contacting the Switchboard, 22.6% for 4-7 days, 14.7% 1-4 weeks, 11.5% for 1-2 months, and 10.5% for over 2 months. Other measures that may indicate healthy and caring relationships between youth and adults staffing RHY centers are also under consideration. The goal would be to increase the percentages of youth that call during the earlier time periods (during the first few days, up to the first week). FY 1999 is tentatively the baseline year.

In FY 2000 FYSB awarded additional funds to the NRS for enhancing their presence on the web, their use of all media, besides the traditional (e.g., flyers mailed to middle and high school counselors) and their overall communications and outreach activities. More awareness among youth of the NRS services, including their preventive potential, could mean more youth learning of the Switchboard and thus reaching out for assistance and counseling (even if only over the phone). Youth in runaway status who contact the NRS are helped to find RHY centers or other appropriate shelters. FYSB's contract with the National Clearinghouse on Families and Youth also pays for the development of handouts, flyers, and other youth-tailored publications (such as "Express Yourself," also published in Spanish, which, among other things, encourages youth to reach out, to communicate, and to establish healthy relationships with caring adults.)

PROGRAM GOAL: 2B. Prevent or mitigate severe youth crises by providing and publicizing opportunities to seek help and receive appropriate intervention and counseling (such as the National Runaway Switchboard) before situations deteriorate and/or the youth leaves home.

7.4d. FY 2002: Increase to X% the proportion of youth who call the National Runaway Switchboard when they are contemplating running away (but before they do so). (developmental; FY 99 is tentative baseline)

Data Source: National Runaway Switchboard

This developmental measure for FY 2002, also pre-intervention in nature, will suggest the reputation and credibility of the National Switchboard and the effectiveness of its outreach and information dissemination efforts. In FY 1999, 9% of youth were contemplating running away when they called, while 61.2% were already runaways, 3.2% were throwaways, 1.2% were homeless, and 25.2% were "in crisis." The target will be expressed as a ratio, with the numerator being "contemplating running away" and the denominator being the total number of youth who call. The goal would be to increase the numerator. FY 1999 is tentatively the baseline year. The same activities and resources described under measure 7.4.c could mean more youth getting counseling, caring attention, referrals, and other interventions before they run away out of desperation.

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A Sense of Industry and Competency;

A Feeling of Connectedness to Others, Especially Caring Adults, and to the Community;

A Belief in Their Control over Their Fate in Life;

3. YOUTH DEVELOPMENT OUTCOME: Youth are empowered to develop into independent, contributing members of society.

PROGRAM GOAL: 3A. Increase the involvement of youth as peers in service delivery and program development

7.4e. FY 2001: Maintain at 15% the proportion of BCP and TLP youth receiving peer counseling through program services. (FY 97 baseline equals 12%)

FY 2002: Maintain at 15% the proportion of BCP and TLP youth receiving peer counseling through program services. (FY 97 baseline equals 12%)

Data source: RHYMIS-LITE

The only change in this measure is the reference to specific RHY programs. In the future, we will explore the use of annual report and RHYMIS-LITE information to determine to what extent RHY youth in the long term TLP program become, as part of their developmental process, peer counselors and mentors to youth who are just entering TLP or to non-TLP youth served in the BCP.

FYSB strongly promotes "positive youth development" approaches to working with adolescents such as service learning, include encouraging youth involvement, leadership, community service, and other experiences which engage youth in healthy life. Training and involvement of youth from the community as volunteers or of RHY youth "on the mend" in communicating with troubled adolescents benefits both peers. This measure is a maintenance, not an increase target, since peer counseling is not appropriate in all cases.

7.4f. FY 2002: Increase by X% the number of youth serving on RHY grantee organization boards and participating in program and activity design, in the following categories: (1) volunteer youth (from the community) and (2) TLP youth. (developmental)

Data Source: RHY Grantee annual reports (as revised)

This developmental measure for FY 2002 will indicate the commitment of RHY grantees and their affiliates to building authentic youth participation and involvement in responsible roles that benefit the community. If RHYMIS-LITE shows sufficient accuracy improvement, a similar measure may be piloted to capture volunteer and community service activity by RHY youth (particularly in the TLP). If changes in grantee reporting can be made on a timely basis and good data are available, FY 2001 will be the baseline year. For further explanation, see measure 7.4.e, above.

PROGRAM GOAL: 3B. Strengthen youth in reaching their full potential socially and economically by providing opportunities that move them toward self-sufficiency.

7.4g. FY 2002: Increase by X% the number of youth in the transitional living programs who have attained suitable education and housing status by the time they exit the program. (developmental)

Data source: RHYMIS-LITE

FYSB is mandated to invest up to 10% of its program funding in support services, such as data collection, communications, research, state projects, monitoring, and training and technical assistance. All of these efforts are focused on improving service delivery and outcomes to at-risk youth in RHY programs. There is more outcome information from the long term TLP program, than from the BCP or SOP, and this program has more of a chance to change a youth's life direction over the eighteen months they can participate. Education and housing is provided during the term but optimal placement upon exit is an important objective, and follow-up services are offered where resources permit.

7.4h. FY 2002: Increase by X% the number of youth in the transitional living programs who successfully complete the program. (developmental)

Data Source: RHYMIS-LITE

Successful completion does not strictly depend on lasting a full eighteen months but will be defined by status at exit and other elements in the TLP section of RHYMIS-LITE.

Developmental measures 7.4g-h (above) indicate the success of the TLP grantees in fulfilling their primary mission. If RHYMIS-LITE improvements can be made timely and reliable data are available, FY 2001 will be the baseline year.

PROGRAM GOAL: 3C: Build partnerships across governments, with communities, and with youth to help youth develop as individuals and as citizens.

7.4i. FY 2001: Maintain with 13 States and youth services grantees in those States a collaboration that supports a youth development approach to services for young people, including substance abuse and teen pregnancy prevention activities and add additional states as resources become available.

FY 2002: Maintain with 13 States and youth services grantees in those States a collaboration that supports a youth development approach to services for young people, including substance abuse and teen pregnancy prevention activities.

Date Source: FYSB administrative records

In numerous programs, such as TANF and WIA, States are carrying an increasing burden and responsibility and authority. These demonstration grants provide for participating States to address youth issues and integration of youth services with other programs on a state-wide basis, bring them into contact with the community-level RHY network, and further the promotion of positive youth development approaches. In administrative terms, FYSB requires periodic reporting from these States, a final evaluation, and attendance at a national meeting in Washington. The objectives of each grant were proposed by the States and awards were made and overseen by FYSB in ways that encourage innovation. FYSB has recently established contractual consulting services with a nationally respected scholar and writer in the youth field. The principal focus of this consultant will be on achieving high quality results and lessons from these projects.

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A Belief in Their Control over Their Fate in Life;

A Stable Identity

4. YOUTH DEVELOPMENT OUTCOME: Youth achieve good mental and physical health and a greater sense of optimism, empowerment and possibility.

Future possible goal development activity: (The following possibilities will depend on RHYMIS-LITE redesign, available resources, and the need to maintain a manageable set of performance goals. Some of the following may replace existing goals if the results lead to improved performance.)

Establish indicators, goals, and targets to measure activities in Street Outreach programs and mental, physical, and dental health services and outcomes in the TLP;
Interview a sample of RHY youths for customer attitudes and perceptions before, during, and after receipt of services;
Obtain capacity and need information from annual reports, such as number of youth turned away from Basic Centers or older youth not enrolled in the TLP due to lack of facilities, services or other resources;
Explore customer feedback information regarding National Switchboard and National Clearinghouse; and
Implement national goal setting around positive youth development principles embodied in the "National Blueprint."

Performance Measurement, Evaluation, and Research Challenges: Despite the RHYMIS-LITE improvement efforts, the environmental and programmatic issues, discussed above under Performance Goals, make performance conclusions for RHY programs, particularly BCP and SOP, difficult to rely upon. Conclusive measurement of long term outcomes for the transient, self-concealing, and fearful street-life SOP population may also be elusive. For both shelter and outreach services, even measuring the level of need has so far been practically impossible, even by the U.S. Census Bureau, national research organizations or advocates for the homeless. Ultimately, the measure may be limited to the overall numbers of those runaway and homeless youth actually experiencing safety and security offered by the limited BCP network, even though services are temporary. This safety and security, even for a few weeks, is a priceless end in itself and can save lives.

The more intensive, long-term services of the TLP are more readily assessed, but the ability to follow up after exit is limited. When resources permit, FYSB would like to initiate a more intensive evaluation of the TLP, exploring the possibility of coordination with evaluations by the Children's Bureau of the Independent Living Program. Earlier evaluation efforts have been too limited to be reliable. ACF youth development research can also link with and build upon existing efforts such as the National Academy of Science's study of Community Level Youth programs and broaden our knowledge of effective practices at both the State and local levels.

In the recent reauthorization legislation, Congress directed FYSB to study the national prevalence and sources (i.e., perpetrators) of sexual abuse against runaway and homeless youth and report back in one year. The study will rely upon links to, and statistical analysis of ongoing studies.

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