The Persistence of the Homeless Shelter as an Institutional Form: NYC’s Response to Homelessness and COVID Through an Organizational Lens

Abstract

This paper investigates a taken-for-granted institutional form, shelters for unhoused New Yorkers, through the neo-institutional lens of institutional inertia and critical case study methodology. It focuses on the external shock of COVID-19, NYC’s use of unoccupied hotels for social distancing, and the return to shelters when COVID waned. For guidance, we examine other instances of interrupted institutional inertia following shocks. Using Lewin’s force field analysis, we explore why changes to some institutional forms amidst COVID persisted while novel approaches to shelter dissipated. We conclude that directly involving unhoused people in the design and implementation of homeless services may improve outcomes.