STORAGE NAME: h0879b.EEC
DATE: 4/17/2025
1
FLORIDA HOUSE OF REPRESENTATIVES
BILL ANALYSIS
This bill analysis was prepared by nonpartisan committee staff and does not constitute an official statement of legislative intent.
BILL #: CS/CS/HB 879
TITLE: Young Adults who are Homeless or were in the
Child Welfare System
SPONSOR(S): Rizo, Woodson
COMPANION BILL: CS/SB 584 (Garcia)
LINKED BILLS: None
RELATED BILLS: None
Committee References
Careers & Workforce
16 Y, 0 N, As CS
Education & Employment
19 Y, 0 N, As CS
SUMMARY
Effect of the Bill:
The bill requires each state college and university to develop a plan prioritizing placement of students who are or
were formerly in foster care or who are homeless or at risk of experiencing homelessness in residence halls owned
by the institution. The bill also requires that if a state college or university implements a priority system for
assigning students to housing or work-study opportunities, it must give first priority to students who are eligible
for a tuition and fee exemption due to their involvement with the child welfare system or classification as a
homeless child or youth. The bill prohibits state colleges and universities from requiring students receiving
specified housing support from needing a cosigner or guarantor to obtain housing.
The bill requires the Department of Children and Families (DCF), community-based care lead agencies (CBCs), and
housing authorities to administer the federal Foster Youth to Independence initiative and other federal programs
and vouchers offered by the United State Department of Housing and Urban Development. DCF, CBCs, and their
subcontracted service providers that administer housing funds for young adults in the child welfare system must
document actions taken to facilitate a young adult’s acquisition of a residential lease.
Fiscal or Economic Impact:
The bill has no fiscal impact on Florida College System and State University System institutions or the DCF.
JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
ANALYSIS
EFFECT OF THE BILL:
The bill requires each State University System (SUS) and Florida College System (FCS) institution to develop a plan
to prioritize the placement of students in residence halls owned by the institution who:
are or were formerly in foster care;
are experiencing homelessness or are at risk of experiencing homelessness; or
are eligible for the tuition and fee exemption currently authorized in state statute
1 due to their involvement
with the child welfare system or classification as a homeless child or youth.
The plan must be developed in consultation with the State Office of Homelessness, located within the Florida
Department of Children and Families (DCF). The DCF’s Office of Continuing Care
2 would be responsible for
determining if a student is or was formerly in foster care. Each SUS or FCS institution is responsible for
determining whether a student meets the definition of a homeless child or youth by using the process for
determining whether a student is eligible for a tuition or fee exemption under existing statute.
3
1
Section 1009.25(1)(c)1.-4. or (1)(e), F.S.
2
Section 414.56, F.S.
3
Section 1009.25(1)(c)1.-4. or (1)(e), F.S.; r. 6A-10.087, F.A.C.; BOG 7.008 JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
2
The bill requires that if a SUS or FCS institution implements a priority system for the assignment of students to or
award of housing operated by the institution, year-round housing, or work-study opportunities, then it must give
first priority to students who are eligible for the tuition and fee exemption due to their involvement with the child
welfare system or classification as a homeless child or youth.
4 Residence halls or dormitory residences are more
often found at state universities than state colleges because the latter typically have more students who commute
to campus. The bill also prohibits FCS institutions and state universities from requiring a student to have a cosigner
or guarantor to obtain housing if the student receives housing support under the Road-to-Independence Program
5
or is receiving continuing care through extended foster care. (Section 1).
The bill requires DCF, community-based care lead agencies (CBCs), and housing authorities
6 to administer the
federal Foster Youth to Independence (FYI) initiative and other federal programs and vouchers offered by the
United States Department of Housing and Urban Development (HUD). This may require DCF, CBCs, and their
subcontracted service providers to do any of the following:
Enter into a memorandum of understanding or letter of intent with each housing authority located within
the service area of the DCF or a CBC.
Provide or secure supportive services for participating young adults for the duration of the FYI initiative
voucher.
Provide a written certification to the housing authority verifying the young adult's child welfare history.
Identify each young adult eligible for an FYI initiative voucher within each CBC's caseload and
communicate such eligibility to each young adult.
The bill requires the DCF, CBCs, and their subcontracted service providers that administer housing funds for young
adults in the child welfare system to document actions taken to facilitate a young adult's acquisition of a residential
lease, including, but not limited to, providing assurances to a landlord that funding will be provided on a monthly
basis through a housing voucher. This requirement applies to entities that serve young adults receiving
postsecondary educational services and support or aftercare services under the Road-to-Independence Program or
young adults receiving continuing care.
7 (Section 2).
The effective date for the bill is July 1, 2025. (Section 3).
FISCAL OR ECONOMIC IMPACT:
STATE GOVERNMENT:
The bill has no fiscal impact on FCS and SUS institutions or the DCF. The bill requires FCS and SUS institutions to
create plans for prioritizing eligible students under the bill in housing owned or operated by the institutions, year-
round housing, and work-study opportunities. This function can be absorbed using each institution’s existing
resources. Duties required of the DCF, CBCs, their subcontracted providers, and housing authorities can also be
absorbed using existing resources.
RELEVANT INFORMATION
SUBJECT OVERVIEW:
Tuition and Fee Exemption
In Florida, young adults who meet certain criteria can have their tuition and fees waived at school districts that
provide workforce education programs, state colleges, and state universities.
8
4
Id.
5
Section 409.1451, F.S.
6
Section 421.04, F.S.
7
Section 39.6251, F.S.
8
Section 1009.25(1), F.S. JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
3
Among those criteria, a student is eligible if he or she was the subject of a shelter proceeding, a dependency
proceeding, or a termination of parental rights proceeding, and:
9
Is, or was at the time he or she reached 18 years of age, in out-of-home care.
Is, or was at the time he or she reached 18 years of age, in the custody of a relative or nonrelative.
10
After spending at least six months in the custody of the Department after reaching 16 years of age, was
placed in a guardianship by the court.
After reaching 14 years of age and thereafter spending at least 18 months in out-of-home care, was
reunited with his or her parent or parents who were the subject of the dependency proceeding before he or
she reaches 18 years of age.
11 Such a student must be Pell Grant-eligible and the entity imposing the tuition
and fees must verify such eligibility.
Was adopted from the Department after May 5, 1997.
Was placed in a permanent guardianship, regardless of whether the caregiver participates or participated
in the Relative Caregiver Program,
12 and remains in such guardianship until the student either reaches 18
years of age or, if before reaching 18 years of age, he or she enrolls in an eligible institution.
The exemption includes fees associated with enrollment in applied academics for adult education instruction and
remains valid until a student reaches 28 years of age.
13
A student who meets the definition of a homeless child or youth under federal law
14 is also eligible to have tuition
and fees waived. Florida uses the same criteria as in federal law to identify students experiencing homelessness,
and also includes individuals who would otherwise meet the definition but for their residence in college or
university dormitory housing.
15
Florida's Child Welfare System
Administered by the DCF, Florida’s child welfare system seeks to:
Provide for the care, safety, and protection of children in an environment that fosters healthy social,
emotional, intellectual, and physical development;
Ensure secure and safe custody;
Promote the health and well-being of all children under the state’s care; and
Prevent the occurrence of child abuse, neglect, and abandonment.
16
Community-Based Care Lead Agencies (CBCs)
DCF outsources some child protection and child welfare services to 16 CBCs.
17 CBCs organize services such as
family preservation, mental health services, case management, emergency shelter, foster care, residential group
care, postplacement supervision, independent living, and permanency.
18
CBCs may subcontract case management and direct care services to other provider groups under certain
conditions.
19 Meanwhile, DCF retains direct control over a number of child welfare functions, including operating
the central abuse hotline, performing child protective investigations, and providing children’s legal services.
20
9
Section 1009.25(1)(c)1.-6., F.S.
10
See ss. 39.5085 and 39.6225, F.S.
11
See s. 39.8155, F.S.
12
Section s. 39.5085, F.S.
13
Section 1009.25(1)(c), F.S.
14
McKinney-Vento Homeless Assistance Act, s. 725 (42 U.S.C. s. 11434a(2).
15
Section 1009.25(1)(e), F.S.; r. 6A-10.087, F.A.C.; BOG 7.008
16
Section 39.001(1)(a), F.S.
17
See s. 20.19(1), F.S.
18
Section 409.986(3), F.S.
19
Section 409.988(1)(j), F.S. Current law requires a CBC to recruit other provider groups when the CBC seeks DCF’s approval
for an exemption to exceed the 35% cap on the direct provision of child welfare services. Current law conditions the
exemption upon a showing that the CBC’s geographic service area still lacks a qualified provider after the CBC’s good faith
recruitment efforts.
20
Section 409.996, F.S. JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
4
Ultimately, DCF must ensure children receive appropriate, quality care.
21 For Fiscal Year (FY) 2023-24, DCF
served 55,092 children with family support services, in-home child protective services, or out-of-home care.
22
Transition Planning and the Office of Continuing Care (OCC)
Some children in out-of-home care do not receive a permanent placement and age out of the child welfare system.
Current law requires DCF and the CBCs to assist an older foster youth to develop a transition plan during the year
after his or her 16
th birthday. A transition plan targets the state’s independent living programs to help older foster
youth access housing, health insurance, financial literacy, a driver’s license, workforce support, and employment
services.
23 DCF must regularly review the transition plan, and the court must approve it before the older youth’s
18
th birthday.
24
The DCF OCC helps individuals who have aged out of the child welfare system until age 26. OCC provides ongoing
support and care coordination needed for young adults to achieve self-sufficiency through food assistance,
behavioral health services, housing, Medicaid, educational services, and workforce development.
25
OCC uses state and federal funding for independent living programs and services for youth aging out of foster care.
These programs include:
John H. Chafee Foster Care Program for Successful Transition to Adulthood (Chafee).
Road-to-Independence Program.
Extended Foster Care (EFC).
Road-to-Independence Program
The Postsecondary Education Supports and Services (PESS) and Aftercare Services programs help eligible young
adults who were in the child welfare system. PESS is a room-and-board stipend (typically $1,720/month) available
to former foster youth who are enrolled in postsecondary education. Aftercare services include mentoring and
tutoring, mental health services, substance abuse counseling, life skills classes, parenting classes, job and career
skills training, counselor consultations, financial literacy skills training, emergency financial assistance for auto
repairs or large medical expenses, and temporary financial assistance for basic living necessities (e.g., education
supplies, transportation expenses, security deposits, furnishings, household goods).
26
During FY 2022-23, 837 young adults received PESS stipends and 468 young adults received aftercare services.
During FY 2023-24, 879 young adults received PESS stipends and 609 young adults received aftercare services.
27
Extended Foster Care
The permanency goal for a young adult who chooses to remain in care past his or her 18th birthday is to transition
to independence. To this end, current law gives these young adults the option to remain in DCF care under judicial
supervision as long as they participate in a qualifying self-sufficiency activity (e.g., pursuing a high school diploma,
GED, postsecondary education, vocational education, workforce development programs, or maintaining
employment for at least 80 hours a month).
28 Extended foster care (EFC) ends on the young adult’s 21
st birthday
(or 22
nd for those with disabilities), when the young adult achieves a statutorily preferred permanency outcome, or
when the young adult knowingly and voluntarily withdraws consent to participate in extended foster care,
whichever is earliest.
29
21
Sections 409.986(1)(b), 409.996, and 409.997, F.S.
22
Department of Children and Families, A Comprehensive, Multi-Year Review of the Revenues, Expenditures, and Financial
Position of All Community-Based Care Lead Agencies with System of Care Analysis: State Fiscal Years 2022-2023 and 2023-2024,
p. 12 (Dec. 1, 2024), available at 2024 Multi-Year Review of Financial Position for Lead Agencies Report.pdf.
23
Sections 39.6035 and 409.14515, F.S.
24
Section 39.6035(3)-(4), F.S.
25
Section 414.56, F.S.
26
Section 409.1451, F.S.
27
Department of Children and Families, Independent Living Services Annual Report 2023-2024, p. 8 (Jan. 31, 2025), available at
Independent_Living_Services_Report_2024.pdf.
28
However, the young adult may be excused from the self-sufficiency activities if the young adult documents a physical,
intellectual, emotional, or a psychiatric condition that limits the young adult’s full-time participation. S. 39.6251(2)(e), F.S.
29
Section 39.6251(5), F.S. JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
5
During FY 2022-23, 1,733 young adults participated in EFC. During FY 2023-24, 1,540 young adults participated in
EFC.
30
Foster Youth to Independence Initiative
The United States Department of Housing and Urban Development’s (HUD) Foster Youth to Independence (FYI)
Initiative is a federal program aimed at preventing homelessness among young adults who are aging out of foster
care or have prior foster care experience. Introduced in 2019, the FYI initiative provides time-limited rental
assistance through the Housing Choice Voucher Program, connecting young adults to supportive services from
local community resources to help them develop essential life skills and achieve self-sufficiency.
31
The FYI Initiative is designed for young adults who are transitioning out of foster care or have prior foster care
experience and are homeless or at risk of experiencing homelessness. Young adults who are transitioning out of
foster care or have prior foster care experience and are homeless or at risk of experiencing homelessness may
receive housing assistance and supportive services for up to 36 months.
In Florida, local public housing authorities contract directly with HUD to offer housing vouchers like the FYI
initiative. There are currently over 90 public housing agencies in Florida that participate in public housing
assistance.
32 There are currently 17 housing authorities in 11 counties that administer FYI vouchers, listed in the
following table:
33
Housing Authorities with FYI Vouchers (3/22/25) County
Jacksonville Housing Authority Duval
Housing Authority of the City of St. Petersburg Pinellas
Tampa Housing Authority Hillsborough
Miami-Dade Housing Agency Miami-Dade
Sarasota Housing Authority Sarasota
West Palm Beach Housing Authority Palm Beach
Housing Authority of the City of Lakeland Polk
Housing Authority of the City of Cocoa Brevard
Housing Authority of Brevard County Brevard
Housing Authority of New Smyrna Beach Volusia
Hialeah Housing Authority Miami-Dade
Alachua County Housing Authority Alachua
Broward County Housing Authority Broward
Palm Beach County Housing Authority Palm Beach
Housing Authority of the City of Deerfield Beach Broward
County of Volusia Dept. of Community Services Volusia
Dania Beach Housing Authority Broward
Additional Federal Programs
Chafee Grants
The U.S. Congress annually appropriates $143 million into Chafee, which provides states with flexible,
supplemental funding to support young adults aging out of foster care in their transition to adulthood. A state may
30
Department of Children and Families, Independent Living Services Annual Report 2023-2024, p. 8 (Jan. 31, 2025), available at
Independent_Living_Services_Report_2024.pdf.
31
U.S. Department of Housing and Urban Development, FYI Brochure for Young Adults, available at
https://www.hud.gov/sites/default/files/PIH/documents/FosterYouthInitiativeBrochure-YoungAdult.pdf.
32
U.S. Department of Housing and Urban Development, Find Your Local Public Housing Agency (PHA), HA Contact Information
by State: Florida, https://www.hud.gov/sites/dfiles/PIH/documents/PHA_Contact_Report_FL.pdf
33
U.S. Department of Housing and Urban Development, Foster Youth to Independence (FYI) Awards, available at
FYI_Program_Effective_Awards_and_Leasing_4.30.24 .xlsx JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
6
apply to the U.S. Department of Health and Human Services (HHS) with a responsive state plan and required
Governor certifications, including a 30 percent cap on room and board expenditures from the state’s allotment for
the fiscal year. If HHS accepts, HHS awards a formula grant, based on the state’s foster care ratio, to the state’s child
welfare agency.
34 In turn, the state must provide a 20 percent non-federal cash or in-kind match to receive their full
allotment.
35
For FY 2024-25, the Florida Legislature appropriated $58.9 million in pass-through funding to the CBCs specifically
for independent living programs.
36
In 2023, Florida received a $8.4 million Chafee allocation for “Successful Transition to Adulthood Programs.”
Florida’s 20 percent contribution match was $1.7 million, and the state allocated an additional $8.0 million, for a
total of $18.1 million.
37
A state child welfare agency may customize its service array offerings in connection with education, employment,
financial management, housing, emotional support and assured connections to caring adults.
38 The minimum
eligibility requirements for Chafee, as outlined in federal law, includes:
Youth in foster care, ages 14 and older.
Young people in or formerly in foster care, ages 18 to 21, or 23 in some jurisdictions.
Youth who left foster care through adoption or guardianship at age 16 or older.
Youth “likely to age out of foster care” to receive assistance to participate in age appropriate and normative
activities.
States and tribes may have additional requirements for eligibility.
39
Pell Grants
Federal Pell Grants are awarded to undergraduate students who display exceptional financial need and have not
yet earned a bachelor’s, graduate, or professional degree. A Pell Grant does not have to be repaid, except under
certain circumstances, and award amounts change yearly. The maximum amount for the 2025-26 award year is
$7,395. The amount of aid a student receives is based upon a student aid index, cost of attendance for a student’s
specific program, part-time or full-time status, and plans to attend for a full-academic year or less. A student can
receive a Pell Grant for no more than 12 full-time terms or the equivalent. To maintain a Pell Grant, a student must
maintain enrollment in an undergraduate program and fill out the Free Application for Federal Student Aid
(FAFSA) form every year.
40
34
42 U.S.C. § 677. The state foster care ratio means the ratio of the number of children in foster care under a program of the
state in the most recent fiscal year (FY) for which the information is available to the total number of children in foster care in
all states for the most recent FY.
35
Patrick Landers, John H. Chafee Foster Care Program for Successful Transition to Adulthood, Congressional Research Service
John H. Chafee Foster Care Program for Successful Transition to Adulthood | Congress.gov | Library of Congress (last visited
Apr. 17, 2025); see 42 U.S.C. § 674(a)(4).
36
Department of Children and Families, A Comprehensive, Multi-Year Review of the Revenues, Expenditures, and Financial
Position of All Community-Based Care Lead Agencies with System of Care Analysis: State Fiscal Years 2022-2023 and 2023-2024,
p. 7 (Dec. 1, 2024), available at 2024 Multi-Year Review of Financial Position for Lead Agencies Report.pdf.
37
Administration for Children and Families, Program Instruction 24-02: Attachment A: FY 2023 Allotment for Chafee Foster Care
Program for Successful Transition to Adulthood Grants, U.S. Department of Health and Human Services, p. 10,
https://www.acf.hhs.gov/cb/policy-guidance/pi-24-02 (last visited Apr. 17, 2025); United States Government Accountability
Office, Report to the Chairman, Committee on the Judiciary, U.S. Senate: Foster Care – HHS Should Help States Address Barriers to
Using Federal Funds for Programs Serving Youth Transitioning to Adulthood, GAO-25-107154, p. 19,
https://www.gao.gov/products/gao-25-107154 (last visited Apr. 17, 2025).
38
United States Government Accountability Office, Report to the Chairman, Committee on the Judiciary, U.S. Senate: Foster Care
– HHS Should Help States Address Barriers to Using Federal Funds for Programs Serving Youth Transitioning to Adulthood, GAO-
25-107154, p. 1, https://www.gao.gov/products/gao-25-107154 (last visited Apr. 17, 2025).
39
United States Government Accountability Office, Report to the Chairman, Committee on the Judiciary, U.S. Senate: Foster Care
– HHS Should Help States Address Barriers to Using Federal Funds for Programs Serving Youth Transitioning to Adulthood, GAO-
25-107154, p. 1, https://www.gao.gov/products/gao-25-107154 (last visited Apr. 17, 2025); s. 409.986(3), F.S.
40
U.S. Department of Education, Federal Student Aid Office, Federal Pell Grants, Federal Pell Grants | Federal Student Aid (last
visited Apr. 17, 2025). JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
7
RECENT LEGISLATION:
YEAR BILL # HOUSE SPONSOR(S) SENATE SPONSOR OTHER INFORMATION
2022 CS/CS/HB 1577 Woodson Garcia Took effect on July 1, 2022.
2022 CS/SB 7034 Garcia The bill did not have a House
companion. Took effect July 1,
2022.
BILL HISTORY
COMMITTEE REFERENCE ACTION DATE
STAFF
DIRECTOR/
POLICY CHIEF
ANALYSIS
PREPARED BY
Careers & Workforce
Subcommittee
16 Y, 0 N, As CS 3/31/2025 Kiner Blalock
THE CHANGES ADOPTED BY THE
COMMITTEE:
Removes a provision establishing the Fostering Independence Grant Program
within the Department of Education.
Education & Employment
Committee
19 Y, 0 N, As CS 4/17/2025 Hassell Blalock
THE CHANGES ADOPTED BY THE
COMMITTEE:
Removes an age requirement.
Prohibits FCS institutions and state universities from requiring a
student to have a cosigner or guarantor to obtain housing if the student
receives housing support under the PESS program, Aftercare Services
program, or is receiving continuing care through extended foster care.
Requires DCF, CBCs, and designated housing authorities to take
specified actions to administer the federal Foster Youth to
Independence (FYI) initiative.
Removes a requirement for OPPAGA to conduct a study.
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THIS BILL ANALYSIS HAS BEEN UPDATED TO INCORPORATE ALL OF THE CHANGES DESCRIBED ABOVE.
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