Introduction
The Violence Against Women Act (VAWA), first passed in 1994 and most recently reauthorized in 2022, encompasses a range of federal responses to the issues of domestic violence, dating violence, sexual assault, and stalking. VAWA established sentencing standards, victim compensation, and rights for survivors in federal programs alongside grants to state, local, and tribal entities. Survivors of human trafficking were first expressly included in VAWA 2013, which amended and authorized appropriations for the Trafficking Victims Protection Act of 2000. VAWA 2013 enhanced measures to combat trafficking in persons and amended the purpose areas for several grants to address sex trafficking administered by the Office for Violence Against Women (OVW) at DOJ. VAWA 2013 also clarified that victim services and legal assistance include services and assistance to victims of domestic violence, dating violence, sexual assault, or stalking who are also victims of severe forms of trafficking in persons (Sacco and Hanson, 2019). VAWA’s 2022 reauthorization (VAWA 2022) required HUD to study and report on housing and service needs of survivors of human trafficking and individuals at risk for trafficking. HUD’s Office of Policy Development and Research and the Office of the Secretary’s Director on Gender-based Violence Prevention and Equity launched the study in the spring of 2022.
Title VI, the Housing Rights Chapter of VAWA, includes critical housing protections for survivors in HUD-assisted housing, including protections against discrimination at admission, eviction protections, and rights to maintain housing assistance either through an emergency transfer or remaining in their homes (HUD, n.d.). Section 606 of VAWA 2022 sets out the parameters of this Housing Needs of Survivors of Human Trafficking Study. The principal goal of this research is to “assess the availability and accessibility of housing and services for individuals experiencing homelessness or housing instability who are survivors of human trafficking or at risk of being trafficked.” The statute directed HUD to actively coordinate with a set of federal partners in the Interagency Task Force to Monitor and Combat Trafficking, in particular, member offices of the Department of Health and Human Services (HHS) and DOJ. To support a broad and inclusive set of partners in the study process, the statute required HUD to consult with survivors of human trafficking and direct service providers, including organizations that work with runaway and homeless youth, provide services for survivors in community-based programs, provide housing for survivors, and provide homeless assistance.
This Housing Needs of Survivors of Human Trafficking Study seeks to address the following research questions:
What formal assessments and outreach methods are used to identify and assess the housing and service needs of survivors of trafficking, including severe forms of trafficking, and those at risk of being trafficked? What are effective ways to communicate with people with disabilities or limited English proficiency?
What homeless or housing services are available and accessible to survivors of trafficking, including severe forms of trafficking, and those at risk of being trafficked? What is available and accessible for family members of minors involved in the foster care system or for people with disabilities and a need for accessibility features?
- What policies and procedures of mainstream homelessness or housing services facilitate or limit the availability of such services to survivors of trafficking, including severe forms of trafficking, and those at risk of being trafficked? What policies impact people who are involved in the legal system?
- What are best practices in meeting the housing and service needs of survivors of trafficking, including severe forms of trafficking, and those at risk of being trafficked?
- What are the barriers to fair housing and is there housing discrimination against survivors of trafficking who are members of a protected class under the Fair Housing Act?
- Are mainstream homelessness or housing services able to meet specialized needs of survivors of trafficking, including severe forms of trafficking, and those at risk of being trafficked?
- What are the effectiveness of and infrastructure considerations for housing and service-delivery models specific to survivors of trafficking?
To address these research questions, the study team conducted an exploratory assessment of the issue, collaboratively driven by an extensive network of stakeholders. The study team compiled a review of the available literature, drawing on academic research, data collection efforts, program evaluations, and relevant policy research. Using the federal partners specified in the text of Section 606 as a guide and starting point, the study team conducted a series of listening sessions with partners in federal, state, and local government as well as stakeholders with backgrounds in research, policy, advocacy, direct service, and personal lived experience with human trafficking.