An Affordable Home on Reentry

206 Pages·2017·8.98 MB·English

by  Karlo Ng

Federally Assisted Housing
and Previously Incarcerated Individuals
An Affordable
Home on Re-entry

Federally Assisted Housing
and Previously Incarcerated
Individuals

1663 Mission Street · Suite 460 · San Francisco · CA · 94103
© National Housing Law Project – 2018
ACKNOWLEDGEMENTS

NHLP’s Senior Staff Attorney, Catherine Bishop, first authored this guide in 2010, when
the barriers facing people with criminal records began to attract overdue attention of housing and
social justice advocates. While some communities are starting to address this issue, finding a
decent and affordable home remains a significant problem. NHLP Supervising Attorney, Deborah
Thrope, was the lead attorney and editor of this updated edition that captures the latest
developments and policy changes aimed at increasing access to housing for people with criminal
records and their families.

The new guide could not have been accomplished without support from fellow NHLP staff
members Lisa Sitkin, Eric Dunn, Jessie Cassella, Bridgett Simmons, Kara Brodfuehrer and Wendy
Mahoney. NHLP is also grateful for the assistance of Marie Claire Tran-Leung from the National
Sargent Shriver Center on Poverty Law for her thoughtful contributions.

Development of this fully-updated manual was funded by the San Francisco Foundation
and a Bank Community Stabilization and Reinvestment Grant, administered by the State Bar of
California.

Until this guide, there was no comprehensive resource available to assist advocates who
are representing individuals with criminal records in their efforts to obtain housing. We hope that
advocates use this as a tool to expand housing opportunities for people with a criminal record, as
“home” is where so many positive beginnings start.
AN AFFORDABLE HOME ON REENTRY
Table of Contents
INTRODUCTION ............................................................................................................................... 1
CHAPTER 1
THE PROBLEM: INCREASING INCARCERATION RATES AND A SERIOUS
SHORTAGE OF AFFORDABLE HOUSING
1.1 Characteristics of the United States Prison Population ................................................................. 5
1.2 The (Un)Availability of Affordable Housing ................................................................................ 6
CHAPTER 2
ELIGIBILITY FOR FEDERALLY ASSISTED HOUSING FOR INDIVIDUALS WHO
HAVE BEEN RELEASED FROM INCARCERATION
2.1 Introduction .................................................................................................................................. 7
2.2 Criminal History for Selected Crimes .......................................................................................... 8
2.2.1 Conviction for Methamphetamine Production .................................................................... 8
2.2.2 Lifetime Registered Sex Offender ...................................................................................... 8
2.2.3 Previously Evicted for Drug-Related Activity .................................................................. 10
2.3 Policies Relating to Other Criminal History ................................................................................ 11
2.3.1 Limitations on the Authority to Deny an Applicant with a Criminal Record ................... 11
2.3.2 Limitation Regarding the Length of the Denial ............................................................... 12
2.3.3 Relationship of the Prior Criminal Activity to the Future Tenancy .................................. 13
2.3.4 Limitations Based on Fair Housing Laws ......................................................................... 14
2.3.5 Limitations Based on the Violence Against Women Act (VAWA) .................................... 16
Exhibit 1- Spring Valley Hous. Auth. v. [redacted] (Justice Court County of Rockland N. Y.
[Redacted]) ....................................................................................................................... 17
Exhibit 2- Albany Hous. Auth. v. [redacted], No. AHA 06 [redacted] (Albany N.Y. City Court,
Dec. 11, 2006) ................................................................................................................... 24
Exhibit 3- Federally assisted Housing Programs: Admissions for Applicants with Certain
Criminal Backgrounds ...................................................................................................... 26
CHAPTER 3
CRIMINAL HISTORY RECORDS: ACCESS, USE AND
EXPUNGEMENT
3.1 Introduction ................................................................................................................................ 31
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AN AFFORDABLE HOME ON REENTRY
3.2 Criminal History Records ........................................................................................................... 32
3.3 Private criminal history reports .................................................................................................... 33
3.3.1 Sources of private criminal background checks ................................................................ 34
3.3.2 Criminal background reports – contents ........................................................................... 34
3.3.3 Common problems with private criminal records searches .............................................. 35
3.3.4 Key rights of applicants screened with private criminal background checks ....................35
3.3.4.1 Exclusion of outdated or otherwise improper information .................................... 36
3.3.4.2 Accuracy & Disputes ............................................................................................. 36
3.3.4.3 Disclosures to consumers ....................................................................................... 37
3.3.5 Advocacy in cases involving denial of admission
based on private criminal history reports .......................................................................... 37
3.3.6. Opportunities for systemic advocacy ............................................................................... 38
3.4 Drug Treatment Program Records .............................................................................................. 39
3.5 Expungement of Criminal Records ............................................................................................. 40
Exhibit 1 - [Redacted] v. Housing Auth. of Contra Costa County (N.D. Cal. 2005) ................. 43
CHAPTER 4
MITIGATING CIRCUMSTANCES, REHABILITATION AND
REASONABLE ACCOMMODATIONS
4.1 Introduction ................................................................................................................................. 53
4.2 Mitigating Circumstances ........................................................................................................... 53
4.3 Drug Rehabilitation ................................................................................................................... 54
4.4 Reasonable Accommodation ..................................................................................................... 56
CHAPTER 5
CHALLENGING A DENIAL OF ADMISSION
5.1 Introduction ................................................................................................................................. 61
5.2 Notice of the Denial .................................................................................................................... 62
5.3 Preparing for the Review ............................................................................................................63
5.4 The Review Process .................................................................................................................. 64
5.4.1 Review Process for Public Housing, Voucher, and HUD-Assisted Tenants .................... 65
5.4.2 Review Process for USDA Tenants ...................................................................................66
5.5 Statement and Review of Decision .............................................................................................67
Exhibit 1- Billington v. Underwood, No. 81-7978, 707 F.2d 522 (11th Cir. May 23, 1983) .....69
Exhibit 2- [Redacted] v. Hous. Auth. of Austin (W.D. Tex. 1996)...............................................75
Exhibit 3- New York City Hous. Auth. Hearing, Report of Informal Hearing, August 7, 2007.. 94
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AN AFFORDABLE HOME ON REENTRY
CHAPTER 6
ADVOCATING FOR POLICIES THAT RESPOND TO THE HOUSING
NEEDS OF INDIVIDUALS WITH CRIMINAL RECORDS
6.1 Introduction .............................................................................................................................. 102
6.2 The Public Housing Agency (PHA) Five Year and Annual Plans ............................................ 103
6.3 The Consolidated Plan (ConPlan) ............................................................................................ 104
6.4 The Assessment of Fair Housing (AFH) .................................................................................. 106
6.5 Qualified Allocation Plan ......................................................................................................... 107
6.6 Continuum of Care ................................................................................................................... 107
6.7 Olmstead Plans ......................................................................................................................... 108
6.8 Strategies to Address the Housing Needs of Individuals with Criminal Records .................... 109
6.8.1 Identify the Housing Needs of Individuals with Criminal Records ................................. 109
6.8.2 Cultivate Community Partners and Build Coalitions ....................................................... 110
6.8.3 Pilot Programs .................................................................................................................. 111
6.8.4 Policies of Other PHAs .................................................................................................... 111
6.8.5 Success Stories ................................................................................................................. 111
6.9 Examples of Local Advocacy Efforts ......................................................................................... 111
6.9.1 Partnerships between PHAs and Service Providers to Create Housing Opportunity ...... 112
6.9.1.1 Baltimore, Maryland .............................................................................................112
6.9.1.2 Oakland, California ...............................................................................................112
6.9.1.3 Philadelphia, Pennsylvania ..................................................................................112
6.9.1.4 Los Angeles, CA ..................................................................................................112
6.9.1.5 New York City, New York ..................................................................................113
6.9.1.6 Chicago, Illinois ...................................................................................................113
6.9.1.7 Alaska ..................................................................................................................113
6.9.1.8 New Haven, Connecticut .....................................................................................114
6.9.1.9 King County, Washington ...................................................................................114
6.9.1.10 Minneapolis, Minnesota ....................................................................................114
6.9.1.11 Lawrence-Douglas County, Kansas ..................................................................114
6.9.2 PHA Policies that Expand Housing Opportunity ............................................................ 115
6.9.2.1 New Orleans, LA .................................................................................................115
6.9.2.2 Cleveland, Ohio ...................................................................................................115
6.9.2.3 Somerville, Massachusetts ...................................................................................116
6.10 Other Ways PHAs Can Expand Housing Opportunities for Individuals
with Criminal Records .............................................................................................................116
6.11 Change Through Litigation ...................................................................................................... 117
6.11.1 Atlanta ............................................................................................................................ 117
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AN AFFORDABLE HOME ON REENTRY
6.11.2 New York City .............................................................................................................. 117
6.11.3 Old Town, Maine .......................................................................................................... 118
6.11.4 FHA Cases ................................................................................................................... 118
6.11.4.1 New York City, New York ..................................................................................118
6.11.4.2 District of Columbia ........................................................................................... 118
6.11.5 Other Cases .................................................................................................................... 119
6.12 Local Ordinances Preventing Discrimination Against Individuals with Criminal Records .... 119
Exhibit 1- Bonner v. Housing Authority of the City of Atlanta, No. 1:94-CV-376-MHS
(N.D. Ga. Nov. 8, 1995) ................................................................................................. 121
Exhibit 2- Texas case [redacted] .............................................................................................. 149
CHAPTER 7
VOUCHERS, PORTABILITY AND INDIVIDUALS
WITH A CRIMINAL RECORD
7.1 Individuals Porting with a Criminal Record ............................................................................. 159
Exhibit 1- Avanesova v. Housing Auth. of Los Angeles, No. CV-04-5588-GAF
(C.D. Cal. Dec. 20, 2004) ................................................................................................ 161
CHAPTER 8
ADDING AN INDIVIDUAL WITH A CRIMINAL RECORD TO THE ASSISTED
HOUSEHOLD AND RECHECKING CURRENT RESIDENTS
8.1 Introduction ............................................................................................................................... 165
8.2 Adding an Individual with a Criminal Record to the Family ................................................... 165
8.2.1 Reporting Changes in Family Composition and Rechecking Current Residents ........... 165
8.2.2 Re-checking Current Residents Post-Conversion ........................................................... 167
8.2.2.1. Special Rules for a RAD Conversion ................................................................. 167
8.3 Individual Returns to Unit After Brief Absence due to Imprisonment..................................... 167
8.4 Individual with Criminal Record and Guest Policies ............................................................... 168
8.5 Review of a Determination to Not Allow the Individual with the Criminal Record
to Join theAssisted Family .....................................................................................................169
8.6 Individual with Criminal Record as Live-in Aide .................................................................... 170
Exhibit 1- Rules Regarding Reporting of Family Composition and Criminal Background
Checks of New Family Members, Current Tenants and Live-In-Aides 2008 .................. 171
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AN AFFORDABLE HOME ON REENTRY
APPENDIX 1
DESCRIPTION OF FEDERALLY ASSISTED HOUSING PROGRAMS FOR LOWER
INCOME FAMILIES
1.1 Introduction .............................................................................................................................. 177
1.2 Section 8 Housing Choice Voucher Program ........................................................................... 177
1.3 Section 8 Project-Based Vouchers ............................................................................................ 178
1.4 Public Housing ......................................................................................................................... 179
1.5 Federally-Assisted Multifamily Rental Housing Programs ...................................................... 179
1.5.1 How to Find Federally Assisted Multi-family Rental Housing ..................................... 180
1.6 Section 221(D)(3) Below-Market Interest Rate (BMIR) Program ........................................... 181
1.7 Section 236 Rental Program ..................................................................................................... 182
1.8 Section 202 Program for the Elderly and People with Disabilities .......................................... 182
1.9 Section 811 Program for Supportive Housing for Persons with Disabilities ........................... 183
1.10 Project-Based Rental Assistance Programs ............................................................................ 184
1.10.1 Project-Based Section 8 Programs ............................................................................... 184
1.10.2 Section 236 Rental Assistance Program (RAP) .......................................................... 185
1.10.3 Rent Supplement Program ........................................................................................... 185
1.11 Section 8 Moderate Rehabilitation Program ........................................................................... 186
1.12 Home Investment Partnership Program .................................................................................. 187
1.13 Section 17 Rental Rehabilitation Program ............................................................................. 188
1.14 Section 17 Housing Development Program (HODAG) ......................................................... 188
1.15 Low-Income Housing Tax Credit Program (LIHTC) ............................................................. 189
1.16 Rural Development Housing .................................................................................................. 189
1.16.1 Section 515 Rural Rental Housing Program ............................................................... 189
1.16.2 Farm Labor Housing: Section 514 and Section 516 .................................................... 190
1.17 Programs for the Homeless ..................................................................................................... 191
1.17.1 Continuum of Care Program ........................................................................................ 192
1.17.1.1 Shelter Plus Care (S+C) Program ................................................................... 192
1.17.1.2 The Supportive Housing Program (SHP) ........................................................ 193
1.18 Housing Opportunities for Persons with Aids (HOPWA) Program ....................................... 194
1.19 Index of Federal Programs Available to Specific Populations ............................................... 194
1.19.1 Housing Programs available to the Elderly .................................................................. 194
1.19.2 Housing Programs Available to People with Disabilities............................................. 195
1.19.3 Housing Programs Available to People with AIDS and Related Diseases ................... 195
1.19.4 Housing Programs for Families ................................................................................... 195
1.19.5 Housing Programs for Homeless Families ................................................................... 195
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AN AFFORDABLE HOME ON REENTRY

INTRODUCTION

Since 1975, federal regulations have instructed from Rural Development rental housing.
Public Housing Authorities (PHAs) to consider the The federal government supported one-strike and
criminal history of applicants for public housing as it other policies that restrict housing opportunities for
relates to physical violence to persons or property or people exiting jails and prisons for many years,
other criminal acts that would affect the health, safety exacerbating homelessness and contributing to high
or welfare of other tenants.1 As a result, most PHAs recidivism rates. The Obama administration,
have adopted broad screening policies that call for the however, shifted the executive branch’s position on
rejection of applicants with unfavorable criminal housing and reentry to focus more on second
histories. chances. Under Obama, HUD began to emphasize
In 1996, HUD issued its “One Strike and You’re the importance of housing providers’ use of their
Out” policy.2 As the title of the policy suggests, its discretion to adopt policies that would allow
primary focus was on evicting tenants who were formerly incarcerated individuals to obtain housing
linked to criminal activity. However, it also had an upon reentry. In 2011 letters to PHA Executive
admissions component, which directed PHAs to Directors and HUD Multifamily owners and agents,
screen applicants for criminal activity, including HUD encouraged PHAs to allow ex-offenders to
crimes of violence and activity that would lead one to rejoin their families in the Public Housing or
conclude that the applicant could pose a threat to the Housing Choice Voucher programs and reminded
life, health or safety of other residents or to their PHAs of their broad discretion in devising
peaceful enjoyment of the property.3 The HUD admissions and termination policies.4
directive also urged PHAs to evaluate each applicant In 2015 and 2016, HUD issued two important
on a case-by-case basis by weighing the seriousness notices about the use of criminal history records in
of the criminal activity, its recentness and whether the housing-related decisions. The first notice reminds
applicant had been rehabilitated. Unfortunately, many owners and PHAs that HUD does not require the
PHAs did not focus on the individualized assessment adoption of “one-strike” policies and warns housing
aspect of the policy. providers against the use of arrest records alone as the
In addition, Congress began to extend laws basis for an adverse decision.5 The second notice
regarding the impact of criminal activity on admission provides guidance from HUD’s Office of General
and eviction to other federally subsidized housing Counsel and applies a fair housing analysis to the use
programs and to the tenant-based Section 8 program. of criminal records in housing decisions, concluding
HUD simultaneously pushed aggressively for that overly restrictive bans on people with criminal
implementation of policies that would deny admission histories may violate fair housing laws.6 The future of
of individuals with criminal records, despite the fact Obama-era directives and policies like these is
that the federal statutes are limited in scope and uncertain at present, but whatever direction federal
tailored to specific criminal activity. The Department policies on reentry and housing take in coming years,
of Agriculture also began to take steps that resulted in advocacy in this arena will continue to be essential.
the exclusion of individuals with criminal records Accessing federally assisted housing is important
because it is housing that is affordable to the lowest

140 Fed. Reg. 33,446 (Aug. 8, 1975), codified at 24 C.F.R. §
960.203(c)(2) and (3) (2003). 4Letter from Shaun Donovan, HUD Secretary, to PHA Executive
2“One Strike and You’re Out” Screening and Eviction Guidelines Directors (June 17, 2011); Letter from Shaun Donovan, HUD
for Public Housing Authorities (HAs), PIH 96-16 (HA) (Apr. 12, Secretary, and Carol J. Galante, Acting Asst. Sec. for Hous., to
1996); see also Occupancy Provisions of the Housing Owners and Agents (undated).
Opportunity Program Extension Act of 1996, PIH 96-27 (May 13, 5Guidance for Public Housing Agencies (PHAs) and Owners of
1996), extended by PIH 97-27 (May 20, 1997); 62 Fed. Reg. Federally-Assisted Housing on Excluding the Use of Arrest
15,346-49 (Mar. 31, 1997) §§ 982.201 and 982.551-53 and 62 Records in Housing Decisions, H 2015-10 and PIH 2015-19 (Nov.
Fed. Reg. 25,728-38 (May 9, 1997), §§ 960.201-960.210 (all of 2, 2015).
which sought to implement 1996 statutory changes with respect to 6HUD, Office of General Counsel Guidance on Application of
criminal activity). Fair Housing Act Standards to the Use of Criminal Records by
3PIH 96-16, supra note 2, pp. 5-6. Providers of Housing and Real Estate-Related Transactions (Apr.
2016).

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