ACF OPRE: ACF Annual Performance Plans and Reports

Part II: Program Description and Performance Analysis

6.2	YOUTH PROGRAMS (Runaway and Homeless Youth (RHY) Programs and Abstinence Education Programs)

Total Program Resources:
Request, Full Costs, & Annual Measures ($ in millions)	FY 2003	FY 2004	FY 2005
Budget Request (Program Level)	$210.0	$224.8	$346.7
Estimated Full Cost	$217.1	$232.1	$354.5
Program Goal: Improve Community Outreach to Youth Concerning Shelters, etc. Incorporates measure: FY 2003: 6.2 b-c; FY 2004: 6.2b-c; FY 2005: 6.2a-c & f-h	$217.1	$232.1	$354.5

* The distribution of full costs to performance measures may not equal the full cost of the performance program area.

ALLOCATION METHODOLOGY EXPLANATION: Performance measures represent 100% of full cost of program.

PROGRAM DESCRIPTION AND CONTEXT:

RUNAWAY AND HOMELESS YOUTH: The purpose of the Runaway and Homeless Youth Program is to address the crisis needs of runaway and homeless youth by providing youth with emergency shelter, food, clothing, counseling, and referrals for health care. The program reunifies runaway and homeless youth with their families or, when appropriate, provides a more suitable living arrangement (guardian, relative, foster care, transitional living program). Grants are provided to local public and private organizations to establish and operate local runaway and homeless youth shelters to develop or strengthen community-based organizations that serve youth that are not a part of the juvenile justice system, child welfare and/or mental health system. The RHY Act requires that at least 90 percent of the funds be spent on service grants and the balance supports a national hotline for runaways, information clearinghouse, demonstration projects, data collection, site program monitoring, and other support functions. The shelters address the crisis needs of runaway and homeless youth and their families. The Basic Center Program (BCP) awards grants to provide outreach crisis intervention, temporary shelters, counseling, family unification, and aftercare services to runaway and homeless youth and their families. The Transitional Living (TLP) Program provides grants to public and private organizations to support projects that provide longer-term residential services for up to 18 months to homeless youth, including pregnant and parenting youth ages 16-21. The Street Outreach Program (SOP) provides grants to private, non-profit agencies for street-based outreach and education, including treatment, counseling, provision of information, and referral for runaway, homeless street youth.

MENTORING CHILDREN OF PRISONERS PROGRAM: The purpose of the Mentoring of Children of Prisoners Program is to provide competitive grants to applicants in urban, suburban, rural and tribal populations with substantial numbers of children of incarcerated parents. Grants are used to support the establishment and operation of programs using a network of public and private entities to provide mentoring services for these children. Research confirms that societal benefits of mentoring efforts with children, data indicate that mentoring programs have reduced first time drug use by almost fifty percent and first time alcohol use by thirty percent. Providing caregivers and establishing peer relationships for youth have resulted in youths displaying greater confidence, and improvements in their schoolwork and academic performance. This program is authorized under Section 439, Title IV-B, Subpart 2 of the Social Security Act, as amended.

ABSTINENCE EDUCATION PROGRAMS: Section 510 of Title V of the Social Security Act, created under Section 912 of the 1996 Welfare Reform law, established a new categorical program of block grants to states for abstinence education. Its purpose is to enable states to support abstinence education, and at the option of each state, where appropriate, mentoring, counseling, and adult supervision to promote abstinence from sexual activity, with a focus on those groups that are most likely to bear children out of wedlock. Grants are awarded to the states based on a statutory formula determined by the proportion that the number of low income children in the state bears to the total number of low income children for all states. There is a required match of three non-Federal dollars for every four Federal dollars awarded. The Abstinence Education Programs, consisting of the Title V and Special Projects of Regional and National Significance (SPRANS) Community-Based Abstinence Education Projects, will be reassigned from the Health Resources and Services Administration to the Administration for Children and Families, Family, and Youth Services Bureau (FYSB). Both staff and funding for the program are part of the transfer. The Department is proposing a legislative change for the FY 2005 President’s Budget to facilitate the reassignment of these programs from HRSA to ACF. This action consolidates programs that serve similar populations into the same agency, allowing for sharing of expertise, better coordination of resources, improved targeting of abstinence education messages and materials upon the FYSB target group of youth in high risk situations, and to achieve additional efficiencies where warranted.

This move more closely aligns these programs with the comprehensive positive youth development efforts currently underway in the Family and Youth Services Bureau. Positive youth development is a policy perspective that emphasizes providing services and opportunities to support young people in developing a sense of competence, usefulness, belonging, and empowerment. While problem-focused efforts provide youth development activities or services around a particular issue, the youth development approach works best when entire communities, including young people, are involved in creating holistic strategies that that help youth build on their assets and grow into happy and healthy adults. Research shows that youth who are involved with these types of structured activities that build competencies and self-confidence are more likely to abstain from sexual activity. FYSB’s commitment to youth development and youth involvement has had favorable outcomes and these successes will be applied to strengthen the abstinence education programs in both states and community-based organizations.

The purpose of the community-based abstinence education grants program is to provide support to public and private entities for the development and implementation of abstinence education programs for adolescents, ages 12 through 18, in communities across the country. Projects must clearly and consistently focus on the Section 510 (b)(2) definition of abstinence education and agree not to provide a participating adolescent any other education regarding sexual conduct in the same setting. One-year planning grants and three-year implementation grants are funded under the program.

Despite recent declines, teen pregnancy and out-of-wedlock sexual activity remain significant difficulties in communities across the country. United States teen pregnancy rates remain among the highest in the industrialized world. Despite declines during the 1990's, the birth rates for Hispanic and black teens continue to be higher than those for non-Hispanic white and Asian or Pacific Island youth.

These community-based programs are held accountable for their performance by being required to report on six core measures. These measures are:

Proportion of program participants who successfully complete or remain enrolled in an abstinence-only education program.
Proportion of adolescents who understand that abstinence from sexual activity is the only certain way to avoid out-of-wedlock pregnancy and sexually transmitted diseases.
Proportion of adolescents who indicate an understanding of the social, psychological, and health gains to be realized by abstaining from premarital sexual activity.
Proportion of participants who report they have refusal or assertiveness skills necessary to resist sexual urges and advances.
Proportion of youth who commit to abstain from sexual activity until marriage.
Proportion of participants who intend to avoid situations and risk behaviors, such as drug use and alcohol consumption, that may make them more vulnerable to sexual advances and urges.

Program Partnerships

FYSB collaborates with other Federal agencies, other ACF programs, states and community organizations to achieve its mission. FYSB funded State Youth Development Collaboration Projects to thirteen states to establish partnerships, support innovative youth development strategies at the state level to support positive youth development. These five-year grants are being evaluated with results to be published in the near future. FYSB plans to continue its' partnerships with the thirteen states by supporting collaboration between state governments and local community jurisdictions or Tribes.

In FY 2002, the National Youth Summit brought together leading policymakers and practitioners to explore how to further the field of "positive youth development" (PYD). The U.S. Department of Health and Human Services in collaboration with the U.S. Departments of Agriculture, Defense, Education, Housing and Urban Development, Justice, Labor, Transportation, and the Corporation for National and Community Service sponsored the National Youth Summit. Nearly 2,000 participants attended the Summit, including policymakers at the national, state, and local levels; representatives of national youth organizations, the research community, youth service providers and young people. FY 2003 Annual National Youth Summit was held November 6-8 in Washington, DC. The theme was “Building on the Strengths of America’s Youth” and the conference stressed youth leadership and involvement in constructive service to their communities. Over 1000 participants attended, approximately half of whom were youth.

FYSB and the ACF Children's Bureau (CB) are entering their tenth year of collaboration in promoting the PYD philosophy and approach in services to foster care and homeless youth, with particular reference to expanded funding under the Chaffee Independent Living Program (ILP). FYSB's TLP grantees have valuable experience in helping disadvantaged older youth transition to a healthy and productive adulthood; thus, FYSB is helping CB's ILP connect with these community resources.

FYSB works with agencies across HHS and other public, private, and non-profit entities to encourage use of the youth development framework in providing effective services to young people through many work groups directed at the problem of homelessness, adolescent health, HIV prevention among street youth, and other issues. FYSB provides technical training assistance for the purpose of youth-related services and positive youth development that has resulted in a youth initiative in Head Start and other ACF programs.

PROGRAM PERFORMANCE ANALYSIS

Program Performance Table

While the youth measures support three of ACF strategic goals, they all are included in the following table.
Performance Measures	Targets	Actual Performance	Reference (Relevant strategic goal in the HHS Strategic Plan)
ACF STRATEGIC GOAL 1: - INCREASE ECONOMIC INDEPENDENCE AND PRODUCTIVITY FOR FAMILIES
Long Term Strategic Goal: By FY 2009, increase by 8 percentage points (2 percentage points increase each year) the percent of youth who remain employed or are full time students after successfully completing the transitional living program.
6.2a. Increase the percentage of youth who remain employed or are full time students six months after completing the transitional living program.[O] (Developmental)	CY 05: 51% CY 04: 50% CY 03: 49%	CY 05: CY 04: CY 03: CY 02: 48% Baseline	HHS 7.4
Former Measure: Increase the number of youth in Transitional Living Programs who are provided tools, training, and experiences to feel prepared for life as measured by youth who complete high school/GED, receive skills or job readiness training and/or secure employment. (Developmental)	CY 04: replaced CY 03: NA		HHS 7.4
ACF STRATEGIC GOAL 2 - IMPROVE HEALTHY DEVELOPMENT, SAFETY, AND WELL BEING OF CHILDREN AND YOUTH: Provide appropriate shelter, counseling, and other support services to youth and their families in high-risk situations.
6.2b. Increase the proportion of youth living in safe and appropriate settings after exiting ACF-funded services. [O]	FY 05: 92% FY 04: 91% FY 03: 86%	FY 05: FY 04: 9/04 FY 03: 89.6 FY 02: 89.5 (81%)	HHS 7.4 EFFICIENCY MEASURE
6.2c. Achieve state-set targets for reducing the proportion of adolescents who have engaged in sexual intercourse. [O]	FY 05: 50% FY 04: 50% FY 03: 50% FY 02: 50% FY 01: 50%	FY 03: 6/06 FY 02: 6/05 FY 01: 6/04 FY 00: 38% FY 99: 37% FY 98: 71.4%	HHS 1.2
6.2d. Achieve state-set targets for reducing the rate of births to teenagers aged 15-17. [O]	FY 05: 70% FY 04: 70% FY 03: 70% FY 02: 50% FY 01: 50%	FY 03: 6/06 FY 02: 6/05 FY 01: 6/04 FY 00: 28% FY 99: 61% FY 98: 36%	HHS 1.2
GOAL 2 - Improve community outreach efforts to connect youth with appropriate shelter, support services, or other safe and appropriate settings.
6.2e. Increase the percentage of youth that enter a RHY shelter or basic program through outreach efforts.	FY 05: 10% FY 04: 9% FY 03: NA	FY 05: FY 04: FY 03: 3.77% (Baseline)	HHS 7.4
Former Measure: Increase the proportion of youth that contact the National Runaway Switchboard for counseling and referral to safe shelter or other services in the first week.	FY 03: 68% FY 02: 68%	FY 03: 66% FY 02: 65% FY 01: 66% FY 00: 65%	HHS 7.4
6.2f. Establish the number of RHY youth who are engaged in community service and service learning activities while in the program. (Developmental)	FY 05: 11% FY 04: 10% FY 03: NA	FY 05: FY 04: FY 03: Baseline
Former measure: Establish and maintain the number of BC and TLP youth engaged in activities that help others or the community through community service and service learning.	FY 04: Replaced FY 03: NA
ACF STRATEGIC GOAL 3 - INCREASE THE HEALTH AND PROSPERITY OF COMMUNITIES AND TRIBES: Improve the outcome of youth of incarcerated parents by providing them mentoring support.
6.2g. Increase the proportion of children that receive a mentoring experience after experiencing drugs or alcohol for the first time who remain alcohol or drug free. [O](Developmental)	FY 05: FY 04: NA	FY 05: FY 04: Baseline	HHS 7.4
COSTS ASSOCIATED WITH MEASURES % of Full Costs FY 2003: 100% (Measures 6.2b and c) FY 2004: 100% (Measures 6.2b and c) FY 2005: 100% (Measures 6.2a-g)
Total Funding See detailed Budget Linkage Table in Appendix A-12 for line items included in funding totals.	FY 05: $210.0 FY 04: $224.7 FY 03: $346.6 FY 02: $103.0 FY 01: $ 84.1 FY 00:$ 79.2

Summary of Program Performance

In FY 2003, over 82,000 runaway or homeless youths have been reported "admitted to services" on an annual basis, as counted by formal enrollments in the Runaway and Homeless Youth Management Information System, 3,095 were referred by our outreach programs and partners (measure 6.2e). These services included food, shelter, clothing, transportation, counseling and life skills training, recreation, substance abuse prevention, education, and health care. With over 99 percent of grantees reporting the new data from improved collection methods, collected during FY 2003 indicate an increased number of youth and families were served by the RHY system, 619,000 young people were contacted through street outreach programs and provided referrals, food, first aid, and other necessities. (This number included some duplication since street youth are not required to identify themselves and the same youth may be given help on more than one occasion.) While some interventions may be brief or temporary (and not result in formal enrollment), they may have intrinsic, and sometimes lasting, value for the youth, the family, and the community.

The following chart is illustrative of the correlation between interventions and outcomes. It includes youth with multiple issues and service experiences. Issues and services have been combined into similar categories and grouped in a horizontal "problem...solution" format for representational purposes only. The continuation of an "issue" row into a "services" row does not imply that a discrete group of youth with a given issue receive only that service or that the corresponding service directly on the right is always the treatment of choice. Obviously, some correspondences are multiple. However, it is useful to observe generic correspondences, e.g., between the number of housing issues identified and the provision of alternative housing solutions.

Note: the following table is not compliant with Section 508 accessibility standards. For a table that is compliant, please click here.

Issues Reported by Runaway and Homeless Youth During FY 03*	# of Youth	RHY Services Provided to Runaway and Homeless Youth During FY 03 *	# of Youth
(*Based on 76,161 youth. Shelter and other basic needs are provided to all program youth. Many youth enter the RHY programs with multiple issues, for which multiple services are appropriate.)
Alcohol and Other Drug Abuse	29,716	Alcohol and Other Drug Treatment or Prevention	36,094
Household Dynamics Physical, Sexual or Emotional Abuse/Neglect/Assault Mental Health Sexual Orientation/Gender Identity	62,795 26,443 29,127 3,592	Counseling/Therapy Support Groups	100,644 9,147
Mental Disability Physical Disability	2,847 1,492	Life Skills Training/Legal Services	53,468
Unemployment Housing Issues	13,981 27,423	Employment Basic Support Services	7,312 83,048
Health Issues	8,271	Health Care Recreational Activities	19,714 43,166
School/Education Issues	39,106	Youth Education	39,677
Total issues identified	248,101	Total service deliveries*	392,270

Data issues: Performance achievements among specific measures cannot be evaluated with the data available prior to FY 2002 due to reliability data issues. FY 2001 data consisted of a very uneven mixture of data reported via the old system for the first half of the year with RHYMIS-LITE data reported after March following OMB's approval of the new information collection. During the remainder of FY 2001, grantees received, installed, trained, and operated the new software. In its biennial FY 2000-2001 report to Congress, mandated by the 1999 Runaway and Homeless Youth Act, FYSB did not report any RHYMIS or partial RHYMIS-LITE data prior to FY 2002, but described the program improvement activities.

Improvements in the Runaway and Homeless Youth Management Information System (resulting in an entirely new data collection system called RHYMIS-LITE) have significantly increased grantee compliance with data submission requirements. In FY 2003, 99 percent of grantees were in compliance.

In FY 2003, through an extensive, competitive application reviews process, FYSB funded 344 Basic Center Programs (BCP), 191 Transitional Living Programs (TLP), 147 Street Outreach Programs (SOP), and 9 State Youth Development Collaboration Grants for a new five-year period. Over 400 nonprofit organizations or public agencies operate the community-based programs. The average annual grant for these programs is $129,000 for BCPs, $192,000 for TLPs and $94,000 for SOPs.

ACF STRATEGIC GOAL 1: INCREASE ECONOMIC INDEPENDENCE AND PRODUCTIVITY FOR FAMILIES

FY 2005 Plan
6.2a	Increase the percentage of youth in Transitional Living Program that remain employed or full-time students 6 months after successfully completing the program (New - Developmental). Data Source: RHYMIS

This measure will track the progress achieved over time of the above long-term strategic goal. It replaces the former developmental measure "increase the number of youth in Transitional Living Programs who are provided tools, training, and experiences to feel prepared for life as measured by youth who complete high school/GED, receive skills or job readiness training and/or secure employment."

ACF STRATEGIC GOAL 2: IMPROVE HEALTHY DEVELOPMENT, SAFETY, AND WELL-BEING OF CHILDREN AND YOUTH

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

6.2b.

Increase the proportion of youth living in safe and appropriate settings after exiting ACF-funded services.
Data Source: RHYMIS

The following chart illustrates changes in living situation resulting from community-based RHY program operations. The upper half of the charts represent generally positive outcomes and the lower half generally negative. Note that most youth return to the homes of parents, guardians or relatives. (This chart's format is only illustrative and is not meant to imply that an individual youth in the "entrance" column exited into the (identical) situation in the same row.)

Note: the following table is not compliant with Section 508 accessibility standards. For a choice that is compliant, please click here.

Living Situation at Entrance	# of Youth	Living Situation at Exit	# of Youth
Parent/Guardian's Home	55,943	Parent/Guardian's Home	47,177
Relative or Friend's Home	6,626	Relative or Friend's Home	5,168
Foster Home	3,117	Foster Home	3,629
Group Home	1,203	Group Home	1,970
Correctional Institute	1,612	Correctional Institute *	1,522
Living Independently	522	Living Independently	1,052
Other (In another living situation)	624	Other (In another living situation)	951
Mental Hospital	474	Mental Hospital	890
Transitional Living Program	148	Transitional Living Program	415
Other Temporary Shelter	522	Other Temporary Shelter	649
Other Youth Emergency Shelter	968	Other Youth Emergency Shelter	889
Residential Treatment	431	Residential Treatment	819
Other Adult's Home	919	Other Adult's Home	623
Other Youth's Home **	333	Other Youth's Home **	175
Basic Center	913	Basic Center (including elsewhere in US)	670
Other Institution	248	Other Institution	366
Drug Treatment Center	170	Drug Treatment Center	260
Independent Living Program	87	Independent Living Program	262
Homeless Family Center	309	Homeless Family Center	220
Homeless Shelter	622	Homeless Shelter	236
Job Corps	72	Job Corps	152
Educational Institute	35	Educational Institute	53
Partner/Spouse	91	Partner/Spouse	92
Military	15	Military	54
		Total "safe & appropriate exits **	68,294

On the Street	5,421	On the Street **	4,499
Unknown situation before entry	778	Do Not Know ***	3,369
		Total not "safe & appropriate exits"	7,868

		(Total exit situations)	76,162

Total entrances ****	82,203	Total "safe and appropriate exits as a percentage of total exits	89.7%
* Placement in a correctional institute may be appropriate or necessary depending on the legal situation. Youth's previous status in the justice system may force this outcome. Youth may have "run away" from program or an older youth may have chosen to leave. * Youth may not have explained reason or disclosed destination. **** Entrances are more numerous than exits because some youth who entered services during the reporting period may still be in the programs when the reporting period ends.

6.2c.

Achieve state-set targets for reducing the proportion of adolescents who have engaged in sexual intercourse.

Abstinence education programs provide education to young people and create an environment within communities that supports teen decisions to postpone sexual activity. The percentage of high school students who reported ever having sexual intercourse decreased from 54% to 45% from 1991-2000.

In the 2001 Youth Risk Behavior Survey, 33% reported they had sexual intercourse during the 3 months preceding the survey compared with 36.3% in the 1999 survey. (CDC, MMWR, June 20, 2002.) There are some indications that early sexual intercourse by adolescents can have negative effects on social and psychological development.

6.2d.

Achieve state-set targets for reducing the rate of births to teenagers aged 15-17.

Research shows that teen pregnancy is linked to a list of risk factors similar to those for other problem behaviors of adolescence, such as alcohol, drug use, violence, delinquency, and school drop-out. Teen parenting is associated with the lack of high school completion and the initiation of a cycle of poverty for mothers. The Department of Health and Human Services established the reduction of teen pregnancies as a priority goal in its 1997 strategic plan. Birth rates for teenagers 15-19 years of age in 2000 were significantly lower than in 1999 in every state, the District of Columbia, the Virgin Islands and Guam. Overall, teen birth rates declined for White, Black, Hispanic, and Asian/Pacific Islander teens and were stable for American Indians. The steepest declines (31 percent) were recorded for black teenagers. Overall, the teen birth rate declined by 22 percent from 1991 to 2000 (CDC, NCHS, National Vital Statistics Reports, September 25, 2001). The 2000 rate is the lowest ever reported.

The percent of states that achieved their state-set target decreased from 71% in FY 1998 to 37% and 38% percent in FY 1999 and FY 2000, respectively. This is due to the very small number of States that reported data for this performance measure in FY 1998. Also, states established their five-year performance targets in FY 1998, which was the first year of the program. Many states did not have good baseline data on which to base their performance targets. In addition, some states may have set ambitious targets for each subsequent program year. While the number of states participating in the Youth Risk Behavior Survey has increased, many states continue to have difficulty in collecting and reporting reliable data related to teenage sexual behaviors. Every effort will be made to continue to work with the states to improve the quality of the data in this area. With an increased number of states reporting data, the percent of states that achieved their state-set target increased from 36% in FY 1998 to 61% in FY 1999. Based on a smaller number of states reporting data for FY 2000 than in FY 1999, 28% of the states achieved their targets. Additional efforts will be made to assure that all states report data, and to improve the quality of the data.

FY 2004-2005 Plan
6.2e.	Increase the percentage of youth that enter a RHY shelter or basic center program through outreach efforts. (Modified) Data Source: RHYMIS


FY 2003 Plan
6.2e.	Increase the proportion of youth that contact the National Runaway Switchboard for counseling and referral to safe shelter or other services in the first week. Data Source: RHYMIS

The 24-hour National Runaway Crisis Hotline Service responds to approximately 120,000 calls a year. Of these calls, 66 percent come from youth within the first week of being on the street. The remaining 34 percent fall into the following categories: 15 percent call within one to four weeks; 10 percent within one and two months; four percent within two to six months and the remaining 5 percent have been on the street over 6 months. This measure has been replaced by a new measure “Increase the number of youth that enter a RHY shelter or basic center program through outreach efforts.”

RHYMIS - REFERRAL REPORT (10/01/02-09/30/03)
Referrals	Number	% of youth
Street Outreach Program	937	1.14%
Temporary Shelter	1,734	2.11%
National Switchboard	424	.52%
Subtotal	3,095	3.77%
Individual/Self	28,105	34.19%
Other Agency/Programs	13,851	16.85%
Juvenile Justice/Law Enforcement	26.187	31.86%
Residential Program	1,014	1.23%
Religious Organizations	117	0.14%
Mental Hospitals	889	1.08%
School	5,983	7.28%
Other Organization	2,037	2.48%
Do not know	926	1.13%
Total Referrals	82,204	100.00

ACF STRATEGIC GOAL 3: INCREASE THE HEALTH AND PROSPERITY OF COMMUNITIES AND TRIBES

FY 2005 PLAN
6.2f.	Establish the number of RHY youth who are engaged in community service and service learning activities while in the program. (New – Developmental). Data Source: RHYMIS

The following measure is new and will track improvements in the outcomes of youth of incarcerated parents by providing them mentoring support.

6.2g.

Increase the proportion of children that receive a mentoring experience after experiencing drugs or alcohol for the first time that remain alcohol or drug free. (New - Developmental).
Data Source: RHYMIS

Table of Contents | Previous | Next