National survey of advocates 
on sexual violence, housing & 
Violence Against Women Act

Key findings

In April 2010, the National Sexual Violence Resource Center partnered with the National Alliance 
to End Sexual Violence, the Victim Rights Law Center, and the National Organization of Sisters 
of Color Ending Sexual Assault to conduct a national survey on housing and sexual violence. This 
survey was conducted to supplement a prior national survey conducted in 2009—the National Survey 
on Housing and Sexual Violence—which focused broadly on the intersections between sexual violence, 
housing, and homelessness. For more information about the key findings of that survey, visit 
http://tinyurl.com/3moce7r or www.nsvrc.org. 


The second survey, National Survey of 
Advocates on Sexual Violence, Housing, and 
Violence Against Women Act Provisions, 
conducted in April 2010 and the subject of this 
report, was designed to better understand the 
specific barriers and needs of sexual violence 
victims and survivors within public and Section 
8 housing programs. A 32-question survey was 
designed in Survey Monkey and was circulated 
via listservs and email networks throughout the 
United States, including the National Alliance to 
End Sexual Violence policy listserv and State/
Territory Sexual Assault Coalitions lists. Both 
surveys focused on sexual violence that occurs 
outside of an intimate partner relationship, 
including rape, sexual assault, incest, child 
sexual assault, sexual harassment, sexual 
exploitation, exposure, voyeurism, and any other 
unwanted sexual contact. 


These survey findings contribute to the growing 
body of research on sexual violence and housing 
intersections and can be used to help inform 
public policy, prevention, and intervention 
strategies. For additional resources on sexual 
violence and housing, visit www.nsvrc.org/
search/node/housing. 



Respondents

Two hundred and fifty-one advocates started 
the survey, and 178, or 70.9% completed it. 
Respondents were from the following 23 states: 

 

1. Arkansas

2. California

3. Florida

4. Illinois

5. Kansas

6. Maine

7. Michigan

8. Minnesota

9. Mississippi

10. Missouri

11. Nevada

12. New Jersey

13. New York

14. New Hampshire

15. Ohio

16. Oklahoma

17. Pennsylvania

18. South Carolina

19. Virginia

20. Washington

21. West Virginia

22. Wisconsin

23. Wyoming

 Respondents held a wide range of roles within their agencies, including administration; legal, 
medical, and housing advocacy; counseling; prevention; outreach; and crisis intervention. 



Sexual violence victims underserved in Public 
and Section 8 Housing

Fifty-nine percent of advocates indicate that the sexual violence victims and survivors they work with 
reside in public housing; 58% indicated that they live in Section 8 housing. Seventy-four percent of 
respondents think that sexual violence victims and survivors living in public or Section 8 housing are 
currently underserved. 



Sexual violence occurring in Public 
and Section 8 Housing

When asked what forms of sexual violence victims or their children have experienced while living 
in Public or Section 8 Housing, advocates identified sexual assault, child sexual abuse, rape, sexual 
harassment, and incest most often. 



Housing a key concern for sexual violence victims 
and survivors

Seventy-two percent of respondents believe that housing issues are key concerns for victims and 
survivors of sexual violence. When asked to share the reasons that housing is a critical issue for 
sexual violence victims and survivors, the following themes emerged: 

-Housing as a critical source of safety and security to trauma survivors 

-Sexual violence as a catalyst for economic insecurity and jeopardized housing options

-Homelessness creates risk factors for further sexual violence

-Relocation is necessary for victims who are often fearful of further violence or traumatized by 
staying in the location where their assaults took place

-Wait lists, financial penalties, and other barriers obstruct safe, quick relocation for many victims



Quotes

“Survivors of any form of sexual assault need 
and deserve to have a sense of security when 
they need to sleep or spend their day and that is 
impossible when you live in a homeless shelter 
or in the streets or in public housing.” 

“Housing is a concern for everyone we work 
with, SA [sexual assault] and DV [domestic 
violence] survivors. The clients we work with 
have little to no money, poor credit, [are] in 
debt…”

“Rape trauma syndrome often results in loss of 
job, which results in loss of housing.” 

“Stable housing is critical for vulnerable 
individuals and many people don’t realize the 
special circumstances that victims of sexual 
assault must deal with to include Post Traumatic 
Stress Disorder. Victims need to feel safe and 
unfortunately low-income neighborhoods where 
Section 8 vouchers are most utilized can also 
experience more crime. Additionally, those that 
have experienced violence in their own homes 
find it difficult to return to them and moving 
with a Section 8 voucher can pose difficulties 
and delays.” 

“Living in a safe environment is essential for 
victims and too often public housing does not 
afford the safety required to heal. Too often, we 
also see wait lists for public housing that force 
clients to remain in shelters or on the street 
thereby increasing their risk of future assaults.” 

“Safety for children who have been victimized; 
safety for adult victims; landlord exploitation 
has been an issue.”

“Frequently, they are traumatized and can’t 
work which leads to not paying rent/mortgage, 
which leads to homelessness, and there are not 
any formal resources available to them most of 
the time, partially because they may have had 
a steady income before the rape and therefore 
are not eligible, and also because most rental 
assistance takes a lot of work to find and time to 
acquire and is sometimes not available to male 
victims or to victims who have no children.” 

“It is a concern for people who have been 
victims of sexual violence in their homes. 
Housing here seems to be a very transient 
population, going from one location to the next. 
Sometimes, that warrants the clients feeling 
unsafe in that they are unfamiliar with their 
neighbors. With our housing areas, there is 
little public transportation. If a situation arises, 
oftentimes, it is very difficult for victims to find 
a way out or a safe place to go.” 

“Victims do not feel safe in the environment if it 
is where they were victimized or if the offender 
knows where they live. Victims lose jobs after 
being victimized and then lose their housing.” 

“When they are homeless or low income, they 
often stay in a situation of abuse just to keep a 
roof over their head.” 

“When my client became homeless, she stayed 
with a friend and was raped.” 

“We live in a remote area where housing is 
limited. Beside the feelings of self-blame and 
embarrassment, a person may feel that they 
would need to move from their home and many 
times, there is nowhere to move or the financial 
means to relocate.” 



Quotes

“I think that there are a lot of barriers, folks 
are in a tough place in all senses of the word. 
Often, housing seems to be one of those pivotal 
security issues—so important, so easily lost, so 
hard to maintain or regain once you have had 
housing issues, whether that is bad credit, no 
housing history, poor housing history or evictions 
or complaints based on things stemming from, or 
directly connected to, the abuse.” 

“[No shelters] for victims of sexual violence. 
Whether the assault occurred in their home 
or by someone who lives nearby/knows where 
they live, finding new and affordable housing 
is difficult. Emergency shelters and even long-
term housing programs seem to be catered more 
toward families than women without children.” 

“When a victim needs to relocate due to incest or 
other sex crimes committed by a known person 
or intimate partner there is never a safe haven 
available for the victim. Often a mother of a 
child victim is displaced due to crime committed 
against her child.” 

“Housing is usually a major safety concern for 
victims. Many victims would need to ensure 
that they have a safe stable place to stay before 
seeking any other kind of support services.”

“First generation immigrants to the U.S. don’t 
understand how the housing authorities can 
help, or what types of services they are eligible 
for. If the information is not conveyed in a way 
and language they can understand, they will not 
approach an agency in seek of help.” 

“Stepfather raped stepdaughter, and stepfather 
is the only household income. Now there is no 
money to pay rent.” 

“When housing is an issue for an individual, there 
are always going to be other issues, which could 
include sexual assault. Families are staying with 
friends or even people they do not know well. 
This could put children at risk for sexual assault.” 

“Affordable housing is in short supply. If a victim 
wants to relocate for safety reasons or emotional 
health, it is not easy to find a new place to live.” 

“People who are raped in their homes don’t feel 
safe to sleep in the same space that they were 
raped. These victims don’t feel that they can 
break their lease without penalties and undue 
financial stress.” 



Relocation and portability needed 

Eighty-eight percent of respondents think that sexual violence victims and survivors need to relocate 
quickly after an assault. 


Reasons for relocation

Seventy-seven percent of advocates indicated that sexual violence victims living in public or Section 
8 housing wanted to relocate due to the perpetrator living in close proximity. Sixty-six percent of 
advocates indicated that victims wanted to relocate following sexual violence because they were 
afraid of further victimization. Sixty-one percent of advocates indicated that anxiety caused by sexual 
violence creates a need for victims and survivors to relocate following an assault. More than half of 
advocates reported that post-traumatic stress disorder (PTSD) from sexual violence and harassment 
by the perpetrator due to reporting sexual violence caused victims to want to relocate. 

 

Advocates explained why they felt that quick relocation would be helpful to sexual violence victims. 



Quotes

“They may be escaping a dangerous situation or 
living in close proximity to their offender.”

“It would be beneficial to individuals who live 
close to the defendant. Also, if they relocate 
to a confidential location, it may decrease 
intimidation and those kinds of safety issues 
especially if there are criminal charges pending.”

“The quicker the victim is out of the situation, 
the safer she/he will be. Moreover, when the 
perpetrator gains knowledge that the victim is 
attempting to leave, the violence will escalate. 
Leaving the situation quickly is imperative. 
Moreover, the quicker the victim is out of the 
situation, the more likely she will not recant her 
story later.”

“At times, the perpetrator may be a neighbor or 
live within the complex. No victim of violence 
should have to see their perpetrator all the time 
until ‘justice’ happens. Victims of violence want 
to just have normalcy back and moving from 
where it happens may help with that.”

“To keep them from the offenders, ensure that 
they do not become homeless. In many cases 
these victims have children that may have to 
be displaced to other family members or due to 
desperation, the victim may choose to stay in the 
home or area of the offender due to the lack of 
housing availability.”

“We don’t have shelters for [sexual violence 
victims]. They want out of the house for safety, 
financial and emotional reasons or they are 
kicked out have nowhere safe to live/take their 
children. The waiting lines at Section 8 are 
so long that referrals are of no use. Shelters 
are dangerous. Clients shut down, disappear, 
decompensate, do not testify…go back. Housing 
managers put their family and friends in above 
those on [the] waiting list.”

“If the assault occurs within the home, victims 
would like to remove themselves from the 
incident location. Remaining in the home would 
be a constant reminder of the sexual assault, 
especially for children.”

“I think it is imperative that survivors are able 
to feel secure, and be able to quickly address 
or process their trauma, so as to better heal. 
Everyone heals differently, but also everyone 
needs to have basic security such as a roof 
over their heads [and] to be able to take care of 
themselves under stress.”

“Assaults are most frequently committed by 
someone the victim knows, and remaining in 
the same housing for a lengthy period of time 
after an assault could result in revictimization or 
harassment such as pressuring/intimidating the 
survivor no to cooperate with prosecution.”

“Especially with Public and Section 8 housing 
relocation can be a slow and difficult process. For 
someone that has recently been assaulted by a 
neighbor, being forced to live next door to them 
can be re-traumatizing if not simply dangerous.”

“Sexual violence survivors would benefit from 
housing assistance while they attempt to cope 
and confront their sexual assault. Women may 
be denied the opportunity to acknowledge their 
victimization if they are dealing with housing 
problems. Not confronting the sexual assault 
is likely to heighten the likelihood of long-term 
problems as result of abuse.”



Quotes 

“It would increase safety and reduce the risk 
of revictimization. It would also be beneficial 
for the recovery of victims if they were able to 
access safe and comfortable housing quickly. 
Additionally, by making this process as quick as 
possible it would show victims that our social 
systems support and protect them.”

“While relocation after an assault should never 
have to be the responsibility of the victim, 
oftentimes it is the victim who needs to take 
further responsibility for their own safety. 
If victims of sexual violence were able to 
quickly relocate, their sense of safety might be 
restored.”

“I have dealt with client situations where victims 
are abused over and over again by the same 
perpetrator knowing they have limited options 
to relocate easily. I have also worked with 
victims who are scared to go live in their current 
housing and therefore ended up living in shelter 
or indecent living situations simply because 
they had limited options to relocate.”

“The immediate safety that quick relocation 
would provide victims, at both the emotional 
and physical levels, is key to their recovery.”

“Safety is priority. When housing is established, 
everyday living can resume with less stressors 
and gives hope to the victim that the system is 
involved and making a concerted effort towards 
their healing process.”

“What if the perpetrator is the landlord? They 
should be able to quickly relocate.”

“They have a right to feel safe in their own 
homes.”

“I have had at least three clients in the last six 
months that were assaulted by someone in or 
near their apartment complex and no longer 
felt comfortable living in their Public or Section 
8 housing. This fear disrupted their lives and 
caused them to be near homeless, or living in 
overcrowded living situations with family or 
friends.”

 “What about preventing penalties for breaking 
a lease if someone feels unsafe because of 
sexual violence or threat of sexual violence? I’ve 
seen cases where women were not able to get 
their deposit back, because they felt like they 
needed to leave before the lease was up.”

Barriers to relocation

Although numerous victims want to relocate 
after sexual violence has occurred there are 
many barriers preventing relocation. Sixty-
six percent of advocates indicated that sexual 
violence victims could not move due to a lack 
of funds to pay for relocation. Fifty percent 
of advocates said that victims had no better 
options than to remain in their current housing. 
Forty-five percent of advocates expressed that 
victims were unable to relocate due to feeling 
overwhelmed by trauma from sexual violence. 
Forty-three percent of advocates indicated that 
victims were unable to break their leases and 
were ultimately forced to remain in housing they 
deemed unsafe. 



Sexual violence victims and survivors need priority status

Fifty-seven percent of respondents feel that sexual violence victims should be placed at the top of 
waiting lists for Public and Section 8 housing programs because of sexual violence. Long waiting 
lists was identified as the top barrier sexual violence victims and survivors face in accessing safe, 
affordable housing options. 

 



Quotes

Advocates shared the following about the 
importance of priority status for sexual violence 
victims and survivors:

“Housing Section 8 has been closed for quite 
some time and it takes a long time even when 
it is open for the names to come up on the long 
waiting lists.”

“This is connected to their need to feel safe 
and accessing safe housing is critical for them 
to move forward. I believe they face special 
circumstances that require an expedited process 
to access safe housing.”

“A sense of safety and having a safe home is the 
foundation of early and effective recovery from 
sexual trauma.”



Quotes 

“It’s hard to focus on the trauma counseling and 
judicial process when you’re homeless.”

“There are safety issues when the perpetrator 
knows where they live and they are unable to 
move. Oftentimes they contact law enforcement, 
but are told that the person has a right to visit 
another person that lives there. A victim that 
I worked with stayed with someone that lived 
across from her. He glared at her every chance 
he got. She no longer felt safe in her own home. 
Because of the list she had no choice but to stay 
there or become homeless.”

“I feel that victims should always be given 
priority status because they are dealing with 
unique circumstances.”

“I believe that any individual who has been a 
victim of domestic violence and/or sexual assault 
should be given priority when it comes to public 
housing. More often than not, these people are 
oppressed and don’t have any other means of a 
home or safety.”

“Moving to a new home can offer a new sense 
of security for victims. Not only can they have 
a fresh start, but they can begin to rebuild their 
life.”

“If someone is homeless or their income has 
been affected; they are in need of housing which 
could provide safety and reduced vulnerability to 
further victimization.”

“Healing is stalled until sexual violence victims 
feel safe. If the healing is stalled, it bleeds into 
other areas of their life adversely affecting 
them.”

“If the assault occurred in their home or if the 
perpetrator knows where they live then yes, I do 
feel they should be prioritized like a DV [domestic 
violence] victim. I think it should be based on 
imminent threat.”

“Sexual violence is severely traumatic. The 
sooner a transition can be made, the sooner 
the victim may be able to work toward healing. 
Waiting for housing options will just exacerbate 
the victim’s suffering by causing undue stress.” 

“In cases where it is not safe for the victim to 
remain in the present home or area, special 
consideration should be given.”

“The incident location is a constant reminder of 
the sexual assault. Also the fear of the suspect 
returns. [It] gives the victim a sense of safety.”

“Sometimes a person is on a waiting list for 5+ 
years. This is far too long.”

“SA [sexual assault], like DV [domestic violence] 
victims, have unique needs and stable housing is 
key to their recovery.”

“Victims of sexual violence should be 
seek[ing] every resource that will contribute 
to empowerment. The survivor is probably 
experiencing unparalleled vulnerability that will 
be exacerbated by unstable housing.”

“If a victim needs to stay where they are 
not safe, the victim runs the risk of being 
revictimized.”

“If the person is living with their abuser, it is 
important to remove them from the situation as 
soon as possible.”



Quotes 

“Safety is a major concern for victims of sexual 
violence and most victims cannot feel completely 
safe or begin healing if their living environment 
is unstable, unsafe or uncomfortable.”

“Many times victims are not able to work and 
function following victimization. If they were 
given priority that would be one less thing to 
worry about.”

“This would be helpful in cases of child sexual 
abuse where the non offending parent needs 
help moving.”

“They might need to change their environment if 
the rape occurred there.”

“Priority status is giving appropriate attention 
to the needs of rape/sexual violence victims; it 
will help to reduce the emotional and physical 
trauma of rape/sexual violence and prevent 
reoccurrence instances of rape/sexual violence 
by offender”

“Safety is a key concern for victims of sexual 
violence just as any other concern that could 
result into a decision to give a tenant priority in 
public and Section 8 housing.”

“To increase safety and mental well-being. Also, 
victims of domestic violence get this status and 
sexual assault is like the forgotten crime.”

“They are fearful of the offender knowing 
where they live or following them; if the assault 
occurred in their residence it would be a constant 
reminder. Often the perpetrator threatens to 
kill the victim if the victim prosecutes or tells 
other in the family or friends. The sexual assault 
victims, at times, cannot function at school or 
work or socially. Often the victims are socially 
ostracized from family and friends and would do 
better in a new environment.”

 “Domestic violence victims are given the 
opportunity. I believe the same should be done 
for victims of sexual violence.”

“I feel that sexual violence victims should be 
given the same priorities as those who are 
domestic violence victims and stalking victims. 
Many times sexual assault occurs after stalking 
and stalking after sexual assault. Also, domestic 
violence survivors are also sexual assault 
survivors.”

“Many of my clients are often harassed after the 
assault by the perpetrator and would feel much 
safer if they could live in place where they were 
not in constant contact with the perpetrator, or 
that the perpetrator didn’t know where they live.”

Expanding Violence Against 
Women Act protections 

Ninety-four percent of respondents think 
Violence Against Women Act (VAWA) housing 
protections for domestic violence, dating 
violence, and stalking victims in public and 
Section 8 housing environments should be 
extended to sexual violence victims and 
survivors. These protections include protections 
from denials of application, terminations of 
program benefits, and evictions due to domestic 
violence, dating violence, and stalking. 

 


“There are often strict guidelines and lease 
agreements that can be difficult to get out 
of. Especially in instances where the assault 
happens between roommates or neighbors, this 
can add extra stress and concerns.”

“Victims may be afraid to lose their housing if 
they report something happened to them in their 
housing. The waiting list is so long that if they 
jeopardize their space, they could wait two more 
years.”

“Reporting sexual assault in housing units can 
potentially result in negative consequences 
— similar to what domestic violence victims 
experience; victims who rent from private sector 
complexes also may risk housing due to victim 
blaming by authorities.”

“Victims fail to report sexual violence against 
them due to fear of losing their housing.” 


Below are some of the reasons why advocates feel extending these protections to sexual violence 
victims and survivors is so important: 


“Some of the individuals we work with are 
homeless and because of that are victimized on 
the street. Others are living in situations where 
‘if I create waves, I will be evicted.’ ”

“Most of the time we see the victim having to 
leave or housing is evicting the family due to 
criminal activity.” 

Denials, terminations, 
and evictions 

Advocates also described a variety of situations 
in which sexual violence victims/survivors were 
denied, terminated, and evicted from public and 
Section 8 housing due to sexual violence related 
issues. 

“With Client 2 that we had, once she came 
forward so did many others in the building. We 
found that they hadn’t come forward previously 
because they were afraid to get evicted and 
didn’t know where to go to tell what was going 
on. Having a policy in place that all tenants are 
given with who to contact and what happens 
next would be very beneficial.”

 “[The victim’s] name was not on the lease and 
the perpetrator was the name on the lease so 
when he went to prison she was evicted.”

“One client’s landlord was friends with the 
rapist [intimate partner of the client]. When she 
reported the landlord made a dummy eviction 
notice [not legal], taped it to her door, and then 
changed the locks. The sheriff’s office had to 
come out and force the landlord to open the 
door. Landlord also told the client she owed back 
rent in a large sum due within three days. Client 
had no knowledge of back-rent due, although she 
couldn’t confirm because her ex had always paid 
the rent. It was possible the landlord had made 
up the charges to have an additional reason to 
push her out of her home.”

“Client was a woman raped by the landlord and 
was evicted when she filed charges.”

“Two girls [were] raped by [their] dad who went 
to jail. Landlord evicted and sued for back-rent 
even though mom was not allowed to work and 
dad was going away for 20 years. Didn’t bother 
his credit, but she had no way to get a house.”

“Lots of developmentally disabled people 
exploited by landlords, other tenants, and have 
little support after reporting. Often evicted as 
troublesome.”

“Client 1 finally moved out [of] the abusive 
landlord’s house, but he trumped up things to 
keep her deposit. A cracked window that she 
had already paid for, a broken latch that was 
broken when she moved in, etc. He was a real 
jerk because she wouldn’t play his games. Client 
2 had the same landlord and she did go along…
because she had been abused so many years 
by so many men that she [was] conditioned to 
comply so she wouldn’t be homeless.”

“Client was told a reference check with another 
landlord revealed there was too much fighting 
and she made too many police calls, though she 
was no longer with the offender.”

“Only rental reference was negative, because she 
had reported the landlord for sexual assault that 
was not prosecuted.”

“Housing authority became aware of various 
minor violations that were part of police report 
and victim was evicted”


“Client had trouble relocating because the 
landlord made the housing department aware of 
the extensive damage done to her residence. The 
damage was done during the commission of a 
sexual assault against the client, but housing was 
slow to move her and said it was because of the 
condition of her previous residence.”

“Housing refused to allow her to move because 
she hadn’t reported the incident to the police.”

“Landlord wouldn’t let her break the lease 
without more than 30 days notice causing 
cash flow problems for the victim and the only 
place she had to stay was where she had been 
assaulted.”

“Housing authorities seemed more worried 
about their liabilities than the tenant’s safety. 
They protected their employee who was accused. 
They minimized the report due to mental illness 
of tenant.”

“A client was sexually assaulted by a 
maintenance man and was not fully supported by 
her renters [landlord].”

“I can recall a landlord threaten[ing] to evict a 
tenant for leaving a shoe in the parking lot when 
it was the perpetrator who left it there.”

“Victim’s mother was told that victim’s sexual 
assault across the street in a park wasn’t a 
legitimate reason to leave housing.”

“The client experienced harassment from other 
tenants, and the landlord told her if there were 
any more problems she would be evicted.”

“Male victim living in Section 8 housing with 
male roommate. Sexually assault[ed] multiple 
times by roommate. Property manager knew 
about assault and did nothing. Victim [was] told 
he could not ask for relocation until police report 
was filed and would have to continue living with 
perpetrator until new housing was available.”

“Victim was raped by a police officer who was 
also the security person in the housing unit. The 
landlord began to ignore request of the victim for 
repairs to her home. The grass around her unit 
was not mowed. She felt she had to move.”

Discrimination within Public and Section 8 housing

When asked about specific examples of sexual violence victims and survivors being discriminated 
against within Public and Section 8 housing environments, respondents shared the following: 



“I worked with a client who had to give up on a 
Section 8 unit she had almost acquired because 
her previous landlord disclosed the sexual assault 
incident to the potential landlord when he was 
doing a search on previous housing history. This 
client was re-traumatized, felt blamed and she 
had to start over again to search for a new, warm 
and safe, nonjudgmental environment to live.”

“Their requests for having any repair work done 
would be ignored. The landlord would try to evict 
them and threaten to do so by picking on them 
for situations that were insignificant or beyond 
their control.”

“The experience of multiple clients has 
been discrimination from landlord [mainly 
discrimination against Section 8 program, not 
necessarily because the client is a victim of 
sexual violence] when clients present a Section 8 
voucher to a possible apartment offer.”

“[The] client was living in a HUD two bedroom 
apartment. She reported the crime and wanted 
to relocate. [The] client was forced into moving 
into a one bedroom apartment forcing [her] to 
get rid of most of her belongings because the 
apartment was too small.”


Sexual violence victims experience barriers 
in Public and Section 8 housing

According to 71% of advocates, waiting lists pose a significant barrier to sexual violence victims 
trying to access public and Section 8 housing. Fifty-three percent of advocates identified 
perpetrators living in close proximity as a barrier that victims face while living in public and Section 8 
housing. Forty-nine percent of advocates expressed that a major barrier for victims is that the sexual 
assault occurred in/or near their residence which prompts them to want to move. Forty-eight percent 
of advocates said that victims face barriers when they want to move, because they cannot afford to 
break their lease. 


Preventing and addressing landlord sexual assault 
is of great concern

Eighty-five percent of advocates feel it would be helpful if systems were in place to prevent and 
address landlord sexual assault against tenants. Participants shared the following information when 
responding to questions about landlord sexual assault: 

“The women are so limited on housing and feel so grateful to get into a place that they have become 
vulnerable to the landlord.”

“If a tenant has a poor rental or credit history, I’ve known landlords use those as excuses to sexually 
exploit women living in their properties.”

“I have had one client situation where the perpetrator was a landlord and it took the client years 
to disclose the abuse because she did not want to lose her housing. Even when she disclosed the 
perpetrator tried to bribe her to be quiet and when she refused, he threatened her life. I think that 
perpetrators have too much power and control and it’s even worse if a perpetrator is the victim’s 
landlord. How will she feel safe and be able to function well in such an environment?”


Criminal background checks

Conduct criminal background checks on all housing 
personnel, including landlords, maintenance 
personnel, security staff and any other persons 
with access to housing and tenants.

“Criminal background checks should be 
mandatory for landlords and employees. Over 
the years I’ve met with many women who have 
been stalked, spied upon, touched, had privacy 
violated, and raped by landlords and employees. 
Many of these women were afraid to report 
because of fears of physical, financial, or housing 
repercussion.” “Landlords should be required 
to undergo a criminal background check and 
a sexual offender registry check just as the 
potential tenant does.”

“Individuals should be prohibited from holding 
the position of a landlord for public housing/
Section 8 housing if they have a history of 
sexual abuse. They should be subject to criminal 
background checks when applying to become a 
landlord for such types of housing and, therefore, 
prohibited if they have such a background.”

“Criminal background check of landlord and any 
employee, contractor, etc. should be standard. 
Notification of sexual abuse histories and other 
information pertinent to the behavior of landlord, 
employee, [or] contractor.”


Resources for tenants

Provide notification to tenants about sexual 
abuse histories of landlord(s) and other housing 
personnel; provide tenants with information about 
their legal rights and options as well as resources 
on sexual violence risk reduction and referrals to 
community-based sexual violence services. 

“I feel that sexual assault victims have been 
largely ignored and I think being proactive and 
educating potential tenants will increase safety 
and reduce risk.”

“Most systems only address people who have 
been convicted/charged with a crime. Individuals 
might get a false sense of security being that 
most sexual assaults do not reach charges/
conviction in the criminal justice system. Maybe 
have an informational packet sent out with 
phone books or something of that nature. Include 
offender red flags, safety plans, etc in a way 
that is easily accessible to the majority of the 
population.”

“Providing information about housing 
protections for victims who have been assaulted 
– many will not report because they are afraid 
doing so will cause them to lose their housing or 
that their landlord will accuse them of violating 
the terms of their housing.”

 “I have had two clients that shared the same 
landlord and he was very sexually abusive to 
them both and they handled it in different ways. 
The both were afraid of losing their housing and 
vouchers in the housing shortage and so did not 
want to be kicked out. It was a very bad time for 
them. They left abusive mates and were then 
revictimized by the landlord. They both had a 
long history of being sexually abused as children. 
They should have had some kind of warning that 
this particular landlord was like this so they could 
have made the decision to rent from him or not.”

Advocates identified numerous strategies to address landlord sexual assault against tenants. 
Recurring recommendations and accompanying quotes follow.



Create state/national reporting hotline and 
investigation protocol, overseen by housing 
authority

“Background checks for anyone employed who 
would also have access to tenant residences; 
obviously anyone with SA [sexual assault] 
offender history not be employed; no-cost 
legal remedy for lower socioeconomic status 
tenants to seek redress when landlord exploits 
tenant relationship or sexual harassment issues; 
no retaliation or threat to lose housing for 
disclosing-there is no mechanism to protect 
victims with poverty backgrounds so they 
remain silent; municipal coding around landlord 
enforcement needs teeth and monitoring so 
those who have history of exploitation can be 
referred for criminal prosecution-needs to be 
responsive and not delayed or protracted.”

“I also think there should be a national hotline 
just for this issue. And reports of landlord sexual 
assault of tenants should then be referred to the 
local housing authority management. Kind of like 
Childline, where the reports come to the same 
place and then there are checks and balances 
to make sure that those cases are investigated 
further.”

“Alternative individuals with housing authorities 
for people to have contact with if the contact 
person is the perpetrator or nothing is being 
done…”

“On the rental agreement that landlords and 
tenants sign have a statement that if sexually 
harassed or assaulted call this number_____.”

“Notification to a third party if something does 
happen inappropriate by a landlord to a tenant. 
If the tenant thinks that by reporting an assault 
by the landlord they will be evicted, then they are 
less likely to report the crime.”

Create best practices and guidelines for 
prevention

“Landlords should have [an] ethical code of 
conduct similar to HIPPA, etc, with housing 
information. Background checks are nice, but 
they only disclose convictions which may give 
victims a false sense of security. There should be 
more stringent guidelines for regarding sexual 
violence by one’s landlord and ‘best practices’ 
should include having no one-on-one meetings 
in the tenant’s home as well as the landlord’s 
office.”

“Policy which includes collaboration with a 
sexual violence program in the area should be 
mandatory.”

“ Possibly a policy that the tenant will be notified 
if any work needs done to their apartment ahead 
of time so they can make arrangements to feel 
safe when the work is being done.”

“Diversity and accountability requirements 
whenever a housing representative interacts with 
clients. For example, female-to-female and male-
to-male partnering staff would decrease the 
likelihood.”


Provide housing protections to victims of 
landlord sexual violence, including whistle-
blower protections for reporting and access to 
safe housing 

“Criminal background checks and notification 
of history are definitely a good idea, but given 
the low rate of prosecution of sex crimes, that 
won’t help very much. Victims who are sexually 
harassed or assaulted by a landlord or other 
apartment staff should be given ‘whistle-
blower’ protection when reporting and should 
be relocated regardless of whether there is a 
successful criminal prosecution and/or a police 
report made.”

Establish zero-tolerance policies for sexual 
violence 

 “Realistic investigations into reported abuses 
[to the criminal justice system or otherwise], 
prevention through training/clear explanations of 
zero tolerance for any type of sexual abuse [the 
entire continuum].”

Training for Housing Personnel: Mandate training 
for all housing personnel, including landlords, 
security staff, maintenance personnel and others 
working in/around housing on responding to and 
preventing sexual violence. 

“Training of sexual harassment, assault issues. 
Make landlords take a mandatory training and 
update every year.”

“Criminal background checks for landlords and 
all workers for a renter, withholding their ability 
to have Section 8 funding for their apartments. 
Prevention trainings for employees of rental 
agencies.”

Funding for Legal Aid Programs: More funding 
for legal aid programs that work with housing 
issues and tenant rights 

“In our area we have a legal aid program that 
works with housing/tenant rights and with more 
funding to programs such as these they could 
develop their programs more.”

Sex Offender Management and Treatment 
Programs: Require sex offender management 
treatment for housing personnel with sexual 
assault histories

“The landlord who has a sexual assault history 
should be in treatment…and show proof of this 
each time his property is to be checked and the 
court system needs to check to see if he/she is 
following through with the requirements that 
he go for regular session for SA [sexual assault] 
abusers.”


Environmental risk factors for sexual violence 
in public and Section 8 housing

Fifty-five percent of advocates indicated that the main characteristic of public and Section 8 housing 
that creates risks for sexual violence is the occurrence of crimes being committed in or near the 
residence. The second most cited risk factor for sexual violence, identified by 49% of advocates, 
was sex offenders living in close proximity. Forty-seven percent of advocates expressed that unsafe 
residences, such as those with broken locks and windows, also are risk factors for sexual violence. 


Conclusion 

Housing is a fundamental human need. It not only protects tenants from the elements, but also 
creates a foundation of safety from which other human needs can be met. For sexual violence victims 
and survivors, housing is a critical lifeline. Yet too often, sexual violence undermines housing options. 

When children are sexually abused, oftentimes, the offender is removed from the home and/or the 
non-offending parent or caregiver must relocate—both often resulting in homelessness or inadequate 
housing options. Sexual violence can interfere with a person’s ability to hold down a job and pay rent, 
often resulting in individuals living in high-risk housing or on the streets. When perpetrators of sexual 
violence are also breadwinners or landlords, sexual violence victims and survivors often face an 
impossible decision: stay and endure further abuse or leave and become homeless. When individuals 
are sexually assaulted in or near their homes, staying there and enduring constant reminders of the 
violence can become detrimental to their health and mental health. Safe and affordable housing can 
enable sexual violence victims and survivors to restore their sense of security and offer the stability 
that is needed to heal from sexual violence. Safe, affordable housing can also serve as a protective 
factor against sexual violence. 

Public and Section 8 housing are home for many sexual violence victims and survivors, the majority 
of whom are women of color and their children. Public policies and practices pertaining to housing 
must be informed by the needs of sexual violence victims and survivors as well as the experiences of 
communities of color. For more information on how public policies and programs can be informed by 
the complex intersections between housing and sexual violence, please contact the National Sexual 
Violence Resource Center (resources@nsvrc.org or 877-739-3895). 

National Sexual Violence Resource Center

The National Sexual Violence Resource Center (NSVRC), founded by the Pennsylvania Coalition Against 
Rape in July 2000, is the nation’s principle source of information regarding all aspects of sexual violence. 
We are committed to assisting the field through Collaboration * Prevention * Resources.


123 North Enola Drive, Enola, PA 17025
Toll free: 877-739-3895 • www.nsvrc.org • resources@nsvrc.org


On Facebook: facebook.com/nsvrc • On Twitter: twitter.com/nsvrc