7th Avenue, 62
9th Avenue, 62
18 NYCRR352.3 (g)-(h) (1983), 39, 40, 71, 73, 130
70th Street, 14
72nd Street, 14
103rd Street, 19
1199 (union), 187
125th Street, 14
151 East 151st Street, 153, 173
539 West 179th Street, 55
1400 Governments, 215
1975 fiscal crisis, 52
36,000 person estimate of New York City’s homeless population, 22, 23, 24
Acevedo, Wilma
addicted persons, 10
administrative challenges, 31
Administrative Directive 83 ADM-47, 40, 42, 43, 49, 77, 128; and the word “immediately,” 40, 42, 44, 49, 107, 121, 124, 125, 134
Advantage program, 10, 178–182, 188–189, 194, 210; revised requirements of, 125; end of, 180–183, 211, 254n134; Work Advantage program, 253n121
advocates for the homeless, 6, 23, 80, 129, 147, 180, 203, 204, 206, 217
Albany, 190
Albert Einstein College of Medicine, 120
“alcoholic only” shelter clients, 32
alcoholics, 2
Alternative Pathways Program (APP), 74, 78, 83
American Journal of Public Health, 146
American political system, 1
Amherst College, 117
Amtrak, 15
Andrews, Kimberly, 115
Anthony, William, 100
Appellate Division of New York State Supreme Court, 44, 48, 49, 50, 59, 73, 76, 125, 126, 127, 128, 130, 169
armories, 29, 34, 35, 48, 88; as homeless shelters, 89–90, 204
Association of Legal Aid Attorneys, 187
Association to Benefit Children, 106
Ativan, 58
Atlanta, 214–215
At the Pleasure of the Mayor, 215
austerity, 199–200
Auto Workers (union), 187
Auwater, Scott, 164–165
Avenue A, 62
Avenue A Block Association, 62
Avenue B, 62
Avenue of the Americas, 14
Baker, James, 144
Baker, Susan, 144
Banks, Steven, 41, 61, 75, 77, 120, 121, 122, 124–125, 127, 131, 135, 136, 150, 157, 168–170, 185, 212; HRA Commissioner, 186–187, 194–195
Barios-Paoli, Lilliam, 146, 188–189, 191–192, 193–194
Barnes, Marlene, 132
Baxter, Ellen, 15, 22, 23, 24, 27, 30, 54, 55, 116, 117, 145
Bedford-Atlantic Shelter, 45
Bedford Stuyvesant, 154
Bellevue Hospital, 57–58, 60, 101, 112, 219
Bellush, Jewel, 197
Berlin, Gordon, 80
Bernstein v. Toya, 18
“bidding up” competition, 217
“big room” of 8 East Third Street Men’s Shelter, 16, 17
Blank, Blanche, 3
Bloomberg, Michael, 5, 9, 141, 146, 148, 150, 152, 159, 170, 172, 183, 185, 186, 188, 189, 191, 192, 194, 207, 211, 212; five-year plan to end homelessness of, 9, 147–148, 193, 209; first term as mayor, 8, 9, 195; homeless policy under, 140–184 passim; pledge by, to reduce shelter population by two-thirds, 148, 176, 178, 179, 209; second and third terms as mayor, 195; settlement of homelessness litigation under, 170, 185
Bloomberg administration, 7, 12, 82, 99, 138, 139, 140, 148, 156, 176, 178, 183, 186, 188, 209, 210, 211, 213
Boardwalk, 14
Bogard, Cynthia J., 23
Borden Avenue Veterans Shelter (BVAS or BVAR), 111–115
borough presidents, 34
Boston University, 100
Bowery, 2, 13, 14, 16, 18, 19, 23, 24, 27
Bowery intake facility (Men’s Shelter at 8 East Third Street), 36
Bowery lodging houses, 26
Brewer, Gale, 171
Broadway, 14
Bronx, 14, 29, 153, 161, 163, 165
BronxWorks, 163–165
Brooklyn Arms (welfare hotel), 202
Brooklyn Bridge, 14
Brooklyn Shelter, 35
Brown, Joyce, 56, 57–59, 100, 219
Brown v. Board of Education, 49, 104
Buchenholtz, Gretchen, 106
bureaucracy, 3, 4, 140, 201, public and nonprofit, 203
Bureaucracy, 140
bureaucrats, 82
Burt, Martha, 11
Bush administration, 146
Bushwick, 154
Bushwick Center, 30
Callahan, Robert, 18
Callahan consent decree, 3, 12, 24, 25, 26, 27, 37, 38, 44, 45, 104, 108, 111, 112, 204, 212; appendix A of, 25, 35; appendix B of, 26; city’s decision to sign, 26–27; dining and leisure activities provided for, 35 plumbing ratios of, 35, 44, 45, 47; quality standards of, 37, 112
Callahan v. Carey, 3, 18, 19, 24, 28, 34, 38, 51, 53, 56, 61, 103, 109, 130, 199, 200, 201
Campaign for Supportive Housing (CSH), 145
Camp LaGuardia Shelter, 16, 25, 112
Cardozo, Michael A., 72, 149, 169
Caro, Frank G., 22
Carples, Jeffrey L., 75, 79, 195
Cartoon Network, 154
case manager, 111
Catholic Worker, 21
census, shelter, 7
Center for Urban Community Services, 67, 116
Center Street, 14
change, 2, 3; ideational/entrepreneurial, 186; incremental, 3, 51, 151, 204, 217; mayoral/majoritarian, 186; nonincremental, 4, 144, 185–187, 204, 217, 219; nonincremental change in a conservative era, 211; presidential/majoritarian, 186; quantum, 4
Charles H. Gay Shelter Center, 29, 35
Chase Manhattan Bank, 13
Chester (town), 30
Chew, Rebecca, 152, 173, 174–175
child welfare, 99
children, homeless, 132, 240n58
Chinatown, 13
Chinese immigrants, 11
“Chronic and Situational Dependency: Long Term Residents in a Shelter for Men” (Keener study), 31, 32
chronic homelessness, 8, 142–143
Citizens Advice Bureau, 163
Citizens Committee for Children, 70, 150
Citizens Housing and Planning Council, 103
City Council, 34, 97, 105, 109, 171–172; General Welfare Committee of, 132, 133; hearings on Home Base evaluation, 172; legislation on homelessness, 71, 79, 90, 97, 103, 132–134
City Council president, 34
City Council speaker, 93
City Hall Park, 202
City Limits, 135
city manager, 218
“City Sees End to Rental Aid for Homeless,” 181
City University of New York, 171
“City’s Cruel Test for Poor Families,” 171
civil disobedience, 202
Client Assessment and Rehousing Enterprise System (CARES), 174, 175
Coalition for the Homeless (CFTH), 5, 15, 17, 21, 27, 28, 37, 82, 91, 108, 131, 135, 139, 160, 172, 176, 179–180, 189, 192, 200, 203
Cohen, Mikal, 100
Coliseum, 14
Columbia Psychiatric Institute, 59
Columbia University Community Services (CUCS), 55
Columbus Circle, 14
Committee for the Heights Inwood Homeless (CHIH), 30, 54–55
Common Ground Community, 163
Community Board 3, 62
Community Board 5, 117
community board meetings, 92
community opposition to shelter placement, 24, 34, 91–92
Community Service Society of New York (CSS), 15, 21, 22, 29, 94; Institute for Social Research of, 22
community residence, 102
community-based organizations, 154
compassionate conservatism, 146
competitive political environment, 4, 216–218, 243n9
comptroller of New York City, 34, 179
Coney Island, 14
Congress, 2
consent decree, 3, 24, 25, 28, 31, 37
conservative dominance, 199
conservative governing coalition, 183, 185, 211, 212, 214
conservative rhetoric, 82
Constitution: New York State, 17, 20, 38; U.S., 17, 38, 122
Constitution, U.S., 17; equal protection guarantee of, 122
consumer-driven services, 209
Cooper, Robert B., 46
corporation council, 57, 72, 75, 120, 121, 130, 131, 149, 169
Corporation for Supportive Housing (CSH), 160
corporatist theories, 3
counter idea, 218
Cournos, Francine, 59
court of appeals, New York State, 17
court orders, 31, 72, 74, 78, 99, 195
court intervention, 104
courts, 5, 6, 17, 104, 185, 203, 204, 206, 207, 212, 217; and social-science analysis, 166–168
Covenant House, 21
Cox, Stuart, 22
Cragg, Michael, 5, 34, 80, 81, 83, 155, 183, 191, 206
Crane, Thomas C., 120, 121, 128, 131, 149, 150, 155
crime, 214
Crisis Intervention Services, 202
critical tasks, 140
Crystal, Stephen, 31
Culhane, Dennis, 8, 9, 10, 99, 144, 193, 194, 209; on supportive housing, 145, 147, 160–161; typology of the homeless, 143–144
cultural factors, 12
Cuomo (Andrew) administration, 190, 191
Cuomo (Mario) administration, 124
Cuomo, Andrew, 5, 7, 75, 93, 180, 185, 205, 214
Cuomo Commission, 4–5, 7, 75, 88, 91, 93–96, 97, 99, 102, 103, 105, 107, 109, 135, 205, 206, 213, 214, 219
Cuomo, Mario, 65, 122, 122, 138, 150
Cutler, Barbara, 118, 121, 149
de Blasio, 177, 184, 185, 186, 191, 211; election of, 186; homelessness policy under, 185–195 passim
de Blasio administration, 12, 189, 190, 191, 193, 197
decentralization, 7
deinstitutionalization, 12, 65, 67
Delevan, the (Bowery hotel), 29
Democratic National Convention, 20, 21
Department of Corrections, 31
Department of Education, 131
Department of Homeless Services (DHS), 2, 7, 76, 96, 97, 103, 105, 130, 131, 132, 133, 134, 135, 138, 140, 141, 150, 153, 155, 156, 159, 161, 166, 170, 171, 173, 177, 178, 179, 180, 183, 187, 191, 193, 194, 198, 199, 203; mission statement of, 140, 193, 209
Department of Housing Preservation and Development (HPD), 50, 52, 69, 71, 74, 83, 105
Department of Mental Health, Retardation, and Alcoholism, 98
Department of Sanitation, 98
Department of Youth and Community Development, 135
depression, 20
Depression, the, 186
Di Brienza, Stephen, 132, 133–134
Dinkins, David, 5, 34, 52, 65, 69, 70, 71, 79, 81, 88, 93, 96, 102, 105, 107, 117, 138, 185, 192, 204, 205, 212; five-year plan of, 90–92; homelessness policy under, 69–104 passim, 213–214; as Manhattan Borough President, 109, 213; on perverse incentives, 79–80; task force on homeless families under, 69, 70, 87, 94
Dinkins administration, 4, 7, 12, 53, 68, 71, 73, 75, 76, 79, 79, 80, 81, 83, 84, 87, 93, 95, 103, 104, 155, 183, 184, 192, 195, 201, 203, 204, 205, 213, 219
Dinkins deluge, 80, 82, 93, 183
discouraged workers, 32
divided government, 4
Doe Fund, 115
domestic violence, 1; HRA shelter system for victims of, 174, LINC II program for victims of, 189
Dowling, Michael J., 122
drift, in American politics, 2; among shelter clients, 114
“drug only” shelter clients, 32
drug use, in homeless families, 9
earthquake, in San Francisco 1906, 11
East Harlem, 154
East Seventh Street, 62
East Tenth Street, 62
East Village, 60
“economic only” shelter clients, 32
Ed Koch and the Rebuilding of New York City, 212
eligibility determination process, 107, 108, 128, 129, 136, 140, 166; at PATH, 167–168, 175, 207, 213
“Eligibility for Temporary Housing Assistance for Homeless Persons,” 127
Ellerin, Betty Weinberg, 251n85
Emergency Assistance Rehousing Program (EARP), 71
Emergency Assistance Unit (EAU), 6, 7, 38, 41, 42, 43, 44, 49, 73, 75, 77, 99, 106, 119, 120, 121, 122, 123, 124, 125, 126, 128, 130, 132, 133, 150–153, 154, 173, 174, 198, 249nn47, 48
entitlement phase of homeless policy, 5–6, 37, 67–68, 103–104; limitations of, 104
entrepreneurs, policy, 4, 117, 144, 185–186, 193, 205, 213, 216–217, 220; judicial political, 217 political, 107; social, 144
estimates of homeless population, 22, 23, 24; in the Bronx, 165
“Failure of Liberal Homeless Policy in the Koch and Dinkins Administrations, The,” 80
“Failures of Litigation as a Tool for the Development of Social Welfare Policy, The,” 44
Family and Adult Services (FAS) at Human Resources Administration (HRA), 26, 27
Family Homelessness Prevention Report, 150
Family Homelessness Special Master Panel (SMP), 148–150, 151, 154, 156, 157
families, homeless, 5, 8, 9, 38, 48, 49, 51, 64, 70, 71, 72, 74, 83, 87, 88, 95, 127, 130, 194, 204, 209; demographics of, 12, 70, 87–88; doubled-up, 80, 83, 87, 127, 192; “immediate need,” 166; infants in, 74; at Kennedy Inn, 132; LINC programs for, 189; Manhattan Borough President Task Force on, 69; “Myths and Facts About,” 69, 87; policy for, 72; priority access to housing subsidies, end of, 155–156; problems of, 8–9, 70, 87–88; public housing for, 70, 87; reapplying for shelter, 153; research on, 9, 87–88, 142; right to shelter for, 217; supportive housing for, 147; in shelter system, 83, 93, 192
Far Rockaway, 177
FedEx, 177
Feinberg, Kenneth, 118–119, 120, 121, 149
Fellini, 21
fines, 44, 75, 76, 77–78, 118, 121
First Avenue, 63
Fish, Nicholas, 117
Flushing Armory, 29
Fordham School of Law, 149
Fort Washington Armory, 29, 30, 45, 89–90
foster care, 127, 129; youth aging out of, 158
fragmentation, 221; fragmented institutional framework, 4; fragmented political environment, 185, 215–216; fragmented policymaking system, 66
Franciscans, 20
Franklin Armory, 45
Freeman, Richard, 141
Freedman, Justice Helen, 41, 42, 43, 44, 50, 71, 72–74, 75, 76, 77, 78, 79, 99, 108, 109, 118, 119, 120, 121, 122, 123, 125, 127, 128, 129, 130, 131, 134, 149, 157, 166, 168–169; contempt finding against Dinkins administration officials, 73, 75–77, 120
Freidman, Milton, 11
Freidman, Sanford, 120
Freidmutter, Cindy, 64–66
Fresh Direct, 177
front-line operators, 140, 151, 209
Funiciello, Theresa, 202–203
gangrene, 60
Gay Shelter Center (Charles H.), 29, 35, 45
George Washington University, 177
Gibbs, Linda, 151, 155, 156, 161, 191, 210
Gische, Judge Judith J., 182
Giuliani, Rudolph, 60, 103, 107, 122, 122, 129, 130, 131, 133, 134, 136, 139, 185, 192, 205, 207, 211, 212, 217; homeless policy under, 105–139 passim; proposed 90-day limit on shelter stays, 106
Giuliani administration, 6, 12, 95, 103, 104, 105, 108, 118, 120, 128, 138, 139, 149, 183, 207, 213, 219, 220; privatization of shelter system under, 110
Goddard Riverside Community Center, 163
Goldman and Sachs, 55
Gopstein, Doron, 19
Gouverneur Hospital, 60
Governing New York City, 197
Graduate School of the City University of New York, 167
Gramercy Park, 14
Grand Central Terminal, 13, 14
Great Society, 186
Greenfield, Edward, Judge, 38, 41, 48, 49
Greenpoint Shelter, 112
Grinker, William, 65
Gross, George, 41
“Guidelines for Determining Eligibility of Doubled-up Families for Temporary Housing Assistance,” 128
Hadley, Trevor, 145
Haggerty, Rosanne, 117–118, 145
Haldol, 58
Hall, Brian, 141
Hamberg, Jill, 141
Hampshire Hotels and Suites, 132
“Hard Lessons about Homelessness: The Education of David Dinkins,” 80
Harlem, 14
Harlem Shelter, 29
Harvard University, 31
Hayes, Robert, 15, 16, 17, 18, 19, 20, 23, 24, 26, 27, 28, 31, 35, 36, 47, 53, 61, 185, 200, 202, 212, 217
Health and Hospitals Corporation (HCC), 53, 57, 59, 60, 100, 101
health care reform, 186
Hendley, Lisa W., 177
Henry Street Settlement, 40, 150
Herald Square, 14
Hernandez-Pinero, Sally, 85, 86–87, 88
HERO (Housing Emergency Referral Operations), 173, 175
Hess, Michael D., 130
Hess, Robert V., 156, 161–163, 164, 178, 179; in Philadelphia, 161
Hirota, Janice M., 113
Home Base, 154–155, 176, 187–188, 211; evaluation of 170–173
Homeless Outreach Population Estimate (HOPE), 165
homeless people, 18, 21, 23, 55, 61, 84, 197, 200; episodic, 143; chronic, 143, 146–147; individual traits of, 142; as an interest group, personal characteristics of, 10; single, 8, 88, 94, 127, 136; visibility of, 13–15, 61, 201, 202; mentally ill, 30, 64, 100, 101; transitional, 143, working, 230
homeless population, estimate of, 22; heterogeneity of, 135, of Utah, 194
homelessness, 1, 2, 4, 5, 183, 204; behavioral problems as cause of, 94, 103, 141; chronic, 8, 56, 146, 148, 187, 193, 194, 209, 211; economic theory of, 94; ending, 187, 193, 209–201; family, 6, 103; housing problem, 70; industry of, 144; legislative solution to, 204 managing, 7, 98–99, 140, 182, 194, 207; overcome, 9, 193, 194, 209, 211; policy, 7, 8; prevention of, 140–141, 147, 148, 154, 170, 182, 187–188, 195, 210, 211; public, 207; resources devoted to in New York City, 199; solving, 7, 8; 193, 205; street, 8; transitory nature of, 198; structural theory of, 10, 70, 98, 141; research on in the 1990s, 141–146; underlying cause theory of, 90–91, 94, 135, 148, 206, 208, 219
homelessness policy, 11, 69, 80, 99, 147, 151, 155, 185, 203; coordinating committee on under Bloomberg, 146–147; entitlement phase of, 5–6, 103–104, 203–205, 219; limits of in New York City; 199; paternalistic phase of, 6–7, 95, 139, 205–207, 219; philosophies of, 10; post-paternalistic phase of, 8–10, 148, 182–183, 187, 207–211; protest and, 201
Homeward Bound Community Services (HBCS), 202
Hopper, Kim, 14, 15, 21, 22, 23, 24, 141
hotel families, 2
hotels, 71
housing, affordable, 99, 194, 199; permanent, 9, 83, 95, 101; subsidized, 81
housing, permanent, 51, 138, 147, 156, 164
housing activists, 8
Housing and Urban Development, Department of (HUD), 1
Housing Development Corporation, 159
Housing Finance Agency, 159
Housing First, 8, 9, 10, 59, 138, 145–146, 147, 148, 158, 160, 163, 164, 165, 183, 185, 187, 189, 191, 207–209, 219–221
housing market, 10
Housing Stability Plus (HSP), 155–156, 176–178
housing stock, 11
housing trends, 12
housing underground, 11
Housing Works, 91
Human Resources Administration (HRA), 16, 22, 29, 21, 36, 37, 41, 49, 65, 71, 75, 76, 77, 84, 85, 96, 98, 105, 106, 109, 131, 173, 186, 194, 205; Bureau of Management Information Systems at, 79; Bureau of Management Systems, Planning, Research, and Evaluation at, 31, 44; Crisis Intervention Services at, 75; domestic violence shelter system of, 174; Emergency Financial Assistance, 171; Family and Adult Services (FAS) at, 26, 27, 31; Homelessness Prevention Administration at, 188, 211; Office of Psychiatry at, 65; welfare policy of under Banks, 188
hunger, 1
Hunter, Floyd, 214
Hurwitz, Mark, 136
Husock, Howard, 176
ideas, 5
ideational paradigm, 4
immigrants, 11
implementation, 2, 67, 68, 204
incentives, 83; perverse, 4, 5, 10, 12, 34, 79–83, 96, 103, 191, 192; monetary, 162; policy, 140; positive and negative, 78; situational, 140
income, maintenance, 99
Income Maintenance Centers (IMCs), 43, 49, 122, 125, 126
Independent Budget Office, 170
independent living plan, 108, 109, 127
individual characteristics of homeless persons, 10
inequality, 183, 185, 186, 193, 211
institutional reform litigation, 77, 78, 119, 131
intake process, 33
interagency councils, 248
Ittleson Foundation, 22
Jacob, Brian A., 82
Jamaica, Queens, 154
Jim Crow, 214
Joffrey Ballet, 97
Johnson, Dr., 197
Johnson (Lyndon), 186
Jose P. v. Board of Education, 131
judiciary, 1
justice, 197
Kelman (Steven), 212
Keener building, 16, 19, 22, 24, 25, 27
Keener study (“Chronic and Situational Dependency: Long Term Residents in a Shelter for Men”), 31, 32, 33, 68
Kellerman, Sara, 53
Kennedy Inn, 132
Kenton, the (Bowery hotel), 29
Kingsbridge Armory, 29
Kirchheimer, Donna Wilson, 198, 199, 200–201, 203
Kirschenbaum, Judge, 59
Klein, Lawrence, 22
Klosterman v. Cuomo, 64
Koch, Edward, 19, 26, 51, 52, 54, 56–57, 63, 64, 71, 79, 81, 84, 105, 131, 192, 207, 211, 212, 213; Advisory Task Force on Homelessness under, 109; homelessness policy under, 13–68 passim; permanent housing programs of, 71; Ten-Year Housing Plan of, 51–53, 212–213
Koch administration, 12, 53, 63, 64, 65, 67–68, 70, 88, 93, 98, 103, 104, 150, 183, 186, 193, 203, 212, 219
Knickman, James R., 88
Krauskopf, Jack, 233
Kronenfeld, Daniel, 150
Kuhn, Randall, 142
LaGuardia (Fiorello), 168, 199
Lamboy v. Gross, 41, 50, 51, 73, 104, 124, 158, 166
Lamboy-Serrano family
Landy, Marc, 3
lavatories, 36
Legal Aid Society, 38, 41, 49, 120, 127, 130, 131, 135, 147, 149, 150, 150, 156, 157, 168, 169, 170, 182, 186
legislature, 16, 48, 103, 126, 216
Lenox Hill, 84
Leventhal, Nat, 52
Levin, Martin, 3
Levitt, Judith A., 43
Lexington Avenue Armory, 29
Lhota, Joseph, 129
Lindsay (John), 186
Lindsay administration, 97
Lippman, Justice, 59
Lipton, Frank, 65
Linville, John E., 57
litigation, 104, 149; two-year hiatus on, under Bloomberg, 149
Living in Communities (LINC) programs, 188–189, 194, 211
Local law 019, 134
Local Law 18, 74
Local Law 57, 133
Los Angeles, 199
Los Angeles Homeless Services Authority, 199
Low Income Housing Tax Credit (LIHTC), 117
Lower East Side, 13, 14, 30, 62
Lowi, Theodore, 215
Ludwig, Jens, 82
MacDonald, Heather, 186
Madison Square Garden, 15, 20, 21
Main, Thomas J., 8, 12, 24, 34
Malin, Joan, 103, 105, 130–131, 135
management, 7
managing homelessness, 7, 140, 209
managing under court supervision, 131
Mangano, Philip F., 144, 146, 147, 193, 209, 220
Manhattan, 13, 14, 16, 19, 29, 161, 162
Manhattan Bowery Corporation, 22, 24
Manhattan Institute, 176
Manhattan State (psychiatric hospital), 19
Markee, Patrick, 172, 180189–191
Mark-Viverito, Melissa, 171
Matthew XXV, 37
mayor of New York City, 34
Mayor’s Management Report, 170
Mayor’s Office of Homeless Facilities and Service Development, 96
Mayor’s Office on Homelessness and SRO Housing, 70
McAllister, William, 80
McCain v. Dinkins, 123
McCain v. Giuliani, 123
McCain v. Koch, 38, 40, 41, 44, 48, 50, 51, 61, 71, 72–73, 79, 104, 117, 122, 123, 125–126, 127, 157, 158, 166, 168, 201, 217
McNamara, Gerald, Captain, 62
media, 23
Medicaid, 1
“Members of New Panel Praised by Both Sides,” 150
Men’s Shelter at 8 East Third Street, 15, 16, 18, 19, 20, 23, 28, 29, 31, 35, 104, 110–111; “big room” of, 16, 17, 27, 198; odor of, 16, 110; staff of, 24
mental health care, 95
mental illness, 1, 9, 10, 12, 60, 70, 204, 205, 219–220
mentally ill homeless, 30, 64, 65, 67, 158, 159, 206
mentally ill people, 61, 64, 134; housing for, 117
Messinger, Ruth W., 91–92
Methadone, 137
Metraux, Stephen, 145
Metropolitan Transit Authority, 191
micromanagement of the shelter system: by courts,119, 128; by City Council, 134
Milonas, E. Leo, 250
Mollenkopf, John, 167, 211, 213
Monk, David B., 167
Motta, Richard, 183
Municipal Shelter Care Center for Men (Men’s Shelter), 20
Murphy, Kenneth, 75
musical chairs theory of homelessness, 10
“My Favorite Martin,” 135
mystery of homelessness, 11, 12
National Alliance to End Homelessness, 1, 144, 146
National Black Arts Festival, 214
National Institute of Mental Health, 88, 100
Nayowith, Gail, 150
neoliberal globalization, 199
“New Arrivals: First-Time Shelter Clients,” 31, 32, 33, 34, 68
Newman, Roger, 173
New Politics of Public Policy, The, 3, 4
New York City, 2, 3, 8, 11, 13, 52, 56, 64, 67, 99, 112, 118, 146, 184, 185, 194; bureaucracies of, 3, 4, 203; dominant governing coalition of, 215; fragmented governance system of, 215–216; homelessness in, 5, 15; homelessness policy of, 4, 6, 7, 8, 9, 12, 203, 215, 217; housing stock of, 11; phases of homelessness policy, 5–10, 203–211; political environment of, 220; politics of, 3; record on the homeless, 197; strong mayor form of government of, 215, 217; welfare policy of, 4
New York City Ballet, 97
New York City Commission on the Homeless (Cuomo Commission), 205
New York City Five-Year Plan for Housing and Assisting Homeless Adults, 90–92
New York City Housing Authority (NYCHA), 71, 84, 87, 88, 105; Command Center of, 85, 88; “economic mix” in, 85–86; eligibility of homeless families for placement in, 192 priority access of homeless families to, end of, 155–156, 176, 178, 179, 180, 182, 183, 188, 210; priority access of homeless families to, reinstatement of, 191–193; Special Rental Team (SRT) of, 84, 85, 86, 88; tenants of, 85, 87, 192–193
New York Civil Liberties Union (NYCLU), 58
New York Daily News, 129, 169, 171
New York Housing Study (NYHS), 138, 146
New York Law Association Building, 162
New York Law Journal, 77, 150, 156
New York Municipal Law, 17
New York/New York Agreements, 8, 55, 160, 198; New York/New York I, 64–67, 147, 117, 145, 158; New York/New York II, 138–139, 145, 158, 160; New York/New York III, 8, 158–161, 189, 190; New York/New York IV, 189–191, 193
New York/New York housing, 61, 190
New York State, 8, 18, 50, 64, 71, 220
New York State Code of Rules and Regulations, 38
New York State Constitution, 17, 18, 20, 38, 41, 51, 104, 124, 127; article 17 of, 17, 38, 41, 48, 49, 50–51, 104, 122, 125, 126; due process provision of, 38; equal protection guarantee of, 122
New York State Court of Appeals, 17, 48, 49, 50, 51, 59, 130
New York State Department of Social Services (DSS), 39, 40, 43, 45, 50, 73, 108, 122, 127, 217
New York State Office of Mental Health (OMH), 22, 64, 65, 102, 191, 220
New York State Social Service Law, 17, 38, 41, 127
New York State Mental Hygiene Law, 53–54; reinterpretation of for Project HELP, 57
New York State Supreme Court, 18, 35, 38, 41, 50, 59, 108
New York Times, 13, 14, 16, 21, 23, 29, 35, 42, 49, 72, 83, 89, 91, 95, 103, 115, 119, 124, 129, 147, 148, 150, 177, 178, 181
New York University Health Research Program, 87
NIMBY, 92
Ninth Precinct, 62
“No Managers Need Apply,” 186
noninstitutionalization, 67
nonprofits, 93, 95, 96, 109, 131, 137, 198
not-for-profit shelters, 6, 34, 207
not-for-profitization, 6, 109–111, 115, 130, 207, 220
nongovernmental organizations, 2
NOVA (No Violence Again), 167, 174
Oakland Union of the Homeless, 199
Obama (Barack), 186
obligation, mutuality of, 95, 107, 218
“Observational Study of Toilet and Shower Utilization at Three Men’s Shelters, An,” 44–46
Oesterreich, Martin, 134–136
Office of Management and Budget (OMB), New York City, 67, 84
Office of Temporary and Disability Assistance (OTDA), 122, 124
O’Flaherty, Brendan, 5, 11, 34, 80, 81, 83, 155, 183, 205
Oliver Twist, 89
One Year Later: The Homeless Poor in New York City, 1982, 22, 29
Orange County, 30
“Outcomes of Homeless Mobilization,” 199
Palace, the (Bowery hotel), 29
panhandlers, 14
Parents on the Move (POM), 202
Park Avenue, 15
Park Avenue Armory, 29
Parks Department, 63
Parliamentary government, 216
Pataki, George, 108, 122, 138, 139, 159, 160
Pataki administration, 124
paternalism, 6–7, 95, 99, 102, 105, 108, 109, 111, 183, 185, 208, 209, 210, 213; limits of, 137, 207, 209, 219, 220
paternalistic mode of policymaking, 203
paternalistic policies, 206
paternalistic shelter regimes, 115, 136, 148
Pathways to Housing, 8, 99–102, 137–138, 145, 163, 191, 220
Patterson (Governor), 169
Pedialyte, 119–120
Pennsylvania Station (Penn Station), 13, 14, 15, 20, 21
Perales, Cesar A., 75, 77, 81, 95, 205
permanent housing, 64, 69, 70, 71, 127, 163, 164, 199, 202, 204, 205
personal characteristics of homeless people, 10
personal disability, 12
Personal Responsibility and Work Opportunity Reconciliation Act, 205
perverse incentives, 4, 5, 10, 12, 34, 79–83, 183, 204, 206, 210, 213
perversity argument, 4, 5, 74, 82, 119, 155
Philadelphia, 161
Philadelphia Union of the Homeless, 202
Phoenix in the Ashes: The Rise and Fall of the Koch Coalition in New York City Politics, A, 211
plumbing ratios, 35, 36, 37, 44, 45, 47, 48
plumbing renovations, 35
pluralism, 197
pneumonia, 60
police departments, 140
Police Headquarters, 14
policy community, 200–201, 203, 212
policy discourse, 82
policy feedback, 219
policy learning process, 68, 104, 139, 160
policy networks, 185–186
policymakers, 56
political science, 197
politics; of homelessness, 11, 200, 202; of interest, 4; of dependency, 203; of poverty, 202; of values and ideas, 4, 218
poor people, 10
Poor People’s Movements, 201
Port Authority Bus Terminal, 13, 15
post-paternalism, 8–10, 182–184, 184, 193, 194, 207–211
post-traumatic stress disorder (PTSD), 114
power, 215
Power Failure: New York City Politics and Policy since 1960, 3
Powers, Peter J., 131
president, 2
Prevention Assistance and Temporary Housing (PATH) intake center, 153, 166, 167; new building, 173–176, 198; pass system at, 173 Resource Room of, 153–154
prevention of homelessness, 140
Private Lives/Public Spaces: Homeless Adults on the Streets of New York City, 22, 23, 27
private sector, 144
privatization, 6, 109–110, 111, 112, 132, 134, 220
professional consensus, 144, 221, 247
professionalization of reform, 4
progressive coalition, 211–212
progressives, 184
Project HELP, 53–54, 56, 59, 60, 61, 68, 100, 101, 102, 137, 145, 206, 207, 219
Project Hospitality, 163
protest, 21, 62, 63, 86, 132, 139, 198, 200, 201–202
“psychiatric only” shelter clients, 32
psychiatric rehabilitation, 100
psychiatric treatment, 206, 207, 208
programs, work and treatment, 6
Public Agenda Foundation, 201
public administration, 2
public ideas, 4, 107, 144, 145, 185, 218, 219, 221, 247
public order, 213
public spirit, 212–214
public transportation, 214
Purnick, Joyce, 119
Putnam, Jane, 54
Q-matic customer flow management system, 174
“Quandaries of Shelter Reform: An Appraisal of Efforts to ‘Manage’ Homelessness, The,” 99
queuing theory, 46, 47, 48, 235
quid pro quo, paternalist, 8, 95, 203, 207, 208–209, 213, 219
rapid rehousing, 9
Ravich, Richard, 145
Raymond, Chip (Charles), 76, 96–99; contempt findings against, 99
Rawls, John, 197
Ready, Willing, and Able, 115
Reagan administration, 5–52
“Reforming New York City’s System of Homeless Services,” 107
Regime Politics: Governing Atlanta, 1946–1988, 214
regulations, 108; 18 NYCRR352.3 (g)-(h) (1983), 39, 40, 71, 73, 127, 128, 129, 130; 94 ADM-20, 107, 122–124, 126; Administrative Directive 05-ADM-07, 153, 166; Administrative Directive 83 ADM-47, 40, 77, 107, 122, 123, 124, 128–129, 134
rehabilitative services, 9, 205, 206, 207
rehabilitation, 5, 6, 8, 90, 94, 148, 204, 213
Reiter, Fran, 190
rent vouchers, 95
Report on the Emergency Assistance Unit and Shelter Eligibility Determination, 150
right to housing, 185
right to shelter, 5, 6, 7, 17, 18, 24, 28, 37, 38, 50, 63, 94, 103–104, 105, 125, 127, 157, 170, 185, 196, 203–204, 207, 212, 217; limitations on, 33, 66, 106, 153
rights, 7, 203; of the mentally ill, 6, 206; positive, 17; premise of, 204, 218; responsibilities and, 95, 107, 218; strategy of, 217
rights revolution, 4
Robertson, Jennifer, 177
Robinson v. Grinker, 123
Robitzek, John E., 123
Rolston, Howard, 172
Roman, Nan, 144
Roosevelt (Franklin), 186
Rosenberger, Judge Ernest H., 48
Sabol, Barbara J., 75, 80, 86, 95, 96, 98, 205
Saint Francis of Assisi Church, 21
Saint Francis Residence, 21
Salvation Army, 112
San Francisco, 11
Seasons Such as These: How Homelessness Took Shape in America, 23
Section 8 vouchers, 9, 82, 156, 176, 210; priority access of homeless families to, end of, 155–156, 176, 178, 179, 180, 182, 188; priority access of homeless families to, reinstatement of, 191–193
Senate, U.S., 134
Separation of powers, 216
September 11th Victim Compensation Fund, 118
Serrano, Oscar, 41
settlement of homeless litigation, 169–170
sheets for shelter beds, 31
Shelter Is Not a Home, A, 69, 79, 87, 88, 92
shelter providers, 129
shelter quality, 5, 48, 50, 115, 125, 204, 206; specified in Callahan consent decree, 25–26
shelter system, New York City, 5, 17, 22, 28, 31, 33, 34, 37, 53, 95, 119, 122, 195, 200, 203, 206, 217; for families, 7, 71, 120, 142; two-track system in, 112, 207
shelters: barracks-style, 4, 5, 71, 73, 79, 88, 203, 204; city-run, 109, 111, 219; congregate, 119; demand for, 69–70, 204; emergency, 163, 199; employment, 137; for families, 110; general, 137; management of, 115, 117, 139; mental health, 137; not-for-profit, 6, 34, 207; private, 112; program, 112, 115, 136, 137, 207; public, 207; for single men, 110; for singles, 130; siting of, 34, 91–93; substance abuse, 137; Tier I, 71, 79; Tier II, 71, 81, 105, 132
Shern, David, 100
Sherwood, O. Peter, 75
Shinn, Marybeth, 144
shopping-bag ladies, 14
situational imperative, 140
Sklar, Stanley, Judge, 46, 47, 108, 109
slum clearance, 199
Smith, Ann, 56
SNAP, 171
social contract, 96
Social Security Act, 38
Social Service Law § 20, 128
social workers, 61
Soule, Sarah, 198
soup kitchens, 102
special masters: Family Homelessness Special Master Panel (SMP), 148–149, 168; Feinberg-Cutler, 118–119, 120–121; regarding eligibility determination, 166–168
Special Rental Team, (SRT), 84, 85
squeegee men, 213
SRO (single room occupancy) housing, 30, 55, 59, 6, 64, 78, 116, 164
St. Marks Place, 62
stasis, 221
State Department of Social Services
State Division of Housing and Community Renewal, 30
State of the city address, 51
Staten Island, 14, 38, 92, 161, 163
Steisel, Norman, 74, 75, 76, 79, 81, 86, 98
Stevenson, the (Bowery hotel), 29
Stigler, George, 11
Stone, Bonnie, 16, 27, 30, 44, 212
Stone, Clarence N., 214–215
street dwellers, 8, 9, 10, 11, 34, 53, 56, 68, 99, 138, 163, 164, 165, 207; involuntary transportation of, 207, 219; outreach to, 53, 99–100, 101, 209
street outreach programs, 53, 164; reformed under Commissioner Hess, 161–163
street population, 190
street-level bureaucracy, 3
Street-Level Bureaucracy, 166
Stringer, Scott, 171
structural theory of homelessness, 10, 11
structuralist account of urban politics, 3
Struening, Elmer, 64
Stuart, Cynthia, 56
subsidies, for rent or housing, 156, 211
substance abuse, 1, 6, 137, 156, 200, 205, 206, 207, 208
substance abuse treatment, 95, 111, 206, 207, 208
Sunshine, the (Bowery hotel), 29
supportive housing, 8, 9, 56, 61, 116, 145, 147, 148, 187, 189, 190, 191, 207
Supportive Housing Network of New York, 56, 190
Surles, Richard C., 60, 65, 66, 220
Szasz, Thomas, 208
“Taking Psych Rehab to the Streets,” 100–101
TANF, 171
Taylor, Gilbert, 193
tax reform, 216
ten-year plans to end homelessness, 193, 209
theories of homelessness, 11; musical chairs, 10; structural, 10; underlying cause, 90–91, 94, 135
theories of urban power, 10
Third Avenue, 14
Thirtieth Street Shelter, 112
Thompson, Phillip J., 80
Times Square Hotel, 116–118
Tompkins Square Park, 61, 62, 63; curfew at, 62, 63; riot at, 61–63, 201–202
treatment plan, 111
Trinity Place, 14
Trobe, Robert, 26, 27, 44, 212
Tsemberis, Sam, 8, 10, 59–61, 99–102, 137–138, 145, 161, 163, 185, 189, 191, 209, 219–221
tuberculous (TB), 60
Tucker v. Toya, 18
Tyler, Justice Andrew R., 19
Tyranny of Kindness, 202
“underclass” pathologies, 9, 206
Underground Atlanta, 214
unified government, 186
Union, the (Bowery hotel), 29
United States Interagency Council on Homelessness (USICH), 144, 146, 147, 209, 220
United Way, 146
Uniting for Solutions beyond Shelter, 147, 148, 179
University of the Sciences, 171
Urban Crisis, 186
Urban Justice Center, 136
urban politics, 3, 12, 197; pluralist theory of, 3, 197; power-elite theory of, 197; corporatist theory of, 3; regime theory of, 197; structuralist theory of, 3
urinals, 45
Utah, 193
Volunteers of America, 183
Wackstein, Nancy, 70, 79, 80, 83–84, 88, 90–91, 205
Wallach, Judge Richard, 36, 37, 46, 47
Wards Island, 16, 19, 24, 27, 29, 35, 45
Washington Heights, 55
Way Home: A New Direction in Social Policy, The, 93–95, 99, 102, 105
weak-mayor system, 218
Weitzman, Beth C., 88
welfare hotels, 2, 4, 5, 70, 72, 78, 80, 81, 84, 104, 116, 119, 198, 202, 204
welfare policy, New York City, 4, 205
welfare programs, 205
welfare reform, 107, 139, 151, 176, 216; under Giuliani, 205
welfare state, 143, 198, 199; post-Fordist, 200
welfare-office clerks, 140
White, Robert H., 235
Wilk, Judge, 130
Willowbrook institution, 98
women, homeless, 22, 29, 132, 240; pregnant, 74
Women’s Shelter Annex, 30
Wood, Robert, 215
Work Experience Program (WEP), 127
work requirements, 33, 129, 204
workfare, 127 130
Yvonne McCain v. Bloomberg, 156