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Policy Brief

Legal Representation for Tenants

Eviction is an ongoing crisis in the United States that disproportionately impacts renters of color. Eviction filings in 2023 exceeded pre-pandemic levels, and as of April 2024, 4.5 million households were behind on rent and at risk of eviction and homelessness. In the face of an eviction case, legal representation often has a decisive positive impact on the outcome, but tenants in eviction court are not guaranteed legal representation except in certain jurisdictions, and usually represent themselves while their landlords almost always have lawyers. By providing tenants with access to legal representation, local governments can address this power imbalance and reduce the likelihood of eviction, protecting renters from its cascading negative impacts on their health, well-being, and finances. Economic impact studies also find that ensuring tenants have legal representation in eviction court saves governments money they would have spent on social safety net responses.

Recognizing these proven benefits, 24 jurisdictions have enacted eviction right to counsel legislation while nearly 60 cities including Baltimore, Maryland; Cleveland, Ohio; Denver, Colorado; and Detroit, Michigan used their American Rescue Plan Act (ARPA) recovery funds to expand access to counsel for tenants facing eviction, creating more momentum for this important strategy. While stemming the eviction crisis requires a comprehensive approach to guaranteeing quality homes for all, equipping tenants with legal representation is an effective strategy that local governments can take to keep renters in their homes and promote housing stability.

What are the potential benefits?

Evaluations of programs that provide a RTC or expand access to legal representation for low-income tenants have found that they help prevent eviction and increase housing stability. An outside evaluation of New York City’s RTC program found that tenants who gained lawyers through the program had better outcomes throughout the housing court process and were less likely to be evicted. Over the past six years the program’s own reporting has found that the vast majority of represented tenants avoided eviction (84 percent in 2023). RTC programs in Cleveland, Ohio; San Francisco, California; Boulder, Colorado; Kansas City, Missouri; and Connecticut have also demonstrated reduced eviction rates. Legal representation also improves outcomes for tenants who want to or must vacate their homes. A study of Cleveland’s RTC program, for example, found that 92 percent of clients who wanted additional time to move obtained it, and 97 percent who sought monetary relief received it. These types of relief can mean the difference between housing stability and homelessness.  

In addition to helping tenants remain housed, avoiding evictions also has a positive impact on health, employment, and educational opportunities and outcomes. Children from evicted families suffered from housing and food insecurity as well as negative health outcomes. Evictions can also impact employment and exacerbate mental health issues, limiting people's ability to escape poverty. Workers who are forced out of their homes are 11 to 22 percent more likely to lose their jobs and earn almost 17 percent less at new jobs. By keeping evictions off a renter’s record, individuals and families are also able to secure housing more easily in the future, avoiding longer-term harm. 

When tenants have access to legal representation, they are more likely to attend court proceedings. A recent report of Milwaukee County, Wisconsin’s Eviction Free MKE program found that legal representation significantly impacted defaulted judgements, where an eviction occurs automatically when tenants fail to show up to court. Before the program's launch, less than 3 percent of tenants had legal representation, leading to a default eviction rate of over 70 percent. Now, with attorneys representing about 25 percent of eviction cases, the default rate has dropped to 32 percent. This benefit of ensuring legal support not only reduces unjust evictions but also generates significant cost savings. The report additionally identified that the Eviction Free MKE program, costing $3 million, saved the County approximately $9 million by reducing social service costs, preserving economic stability, and retaining essential public funding. The cost savings from legal representation underscore its value, as it not only protects tenants' rights but also yields a substantial return on investment for the community.

Where is it happening?

Legal representation for tenants has the potential to substantially reduce evictions, prevent homelessness, and ensure housing stability. Many cities have effectively used ARPA dollars to create, sustain, and expand the scope of services provided within tenant legal representation programs. By partnering with established legal organizations, targeting vulnerable populations, and incorporating translation services, these programs have demonstrated the critical role of legal support in eviction and homelessness prevention. 

JurisdictionStart YearTotal Program FundingARPA Dollars UsedProgram Status
Cleveland, Ohio2020$4,500,000$1,000,000Since July 2020, Cleveland Legal Aid has helped 90 percent of clients prevent eviction judgment or an involuntary move on behalf of the City of Cleveland. In addition, 79 to 94% of clients achieved their case goals including avoiding evictions, securing time to move and rent assistance, and mitigating damages.
Providence, Rhode Island2023$600,000$600,000The Eviction Defense program aims to serve as many as 1,300 residents who earn 65% or less of the Area Median Income (AMI) or who live in a qualified census tract.
St. Louis, Missouri2023$685,000$685,000Since the start of the program, 86% of participants (1,326 tenants) have avoided evictions. 83% of individuals who used the program’s services were extremely low-income renters.
Johnson County, Iowa2022$140,000$80,000Iowa Legal Aid and Shelter House in Johnson County provide housing resources and legal representation to tenants facing eviction on behalf of Johnson County. Legal Aid helped 18 tenants prevent eviction in the first quarter of FY 2023.
Detroit, Michigan2022$30,000,000$18,000,000The Office of Eviction Defense in Detroit provides legal representation for 6,000 low-income Detroit families with children who are facing eviction.
Milwaukee, Wisconsin2021$3,300,000$1,800,000From July 1, 2022 to November 30, 2022 legal representation for eviction court defendants increased 13.7 to 16.2%. Nearly a quarter of eligible tenants participated in the program.
Kingston, New York2023$500,000$500,000The program is in initial implementation stages and residents can call a central intake line, visit Legal Services Offices, or contact the program online.
Cleveland, Ohio

In 2019, Cleveland City Council approved the RTC for low-income families in the City. The program was originally staffed by Cleveland Legal Aid and United Way of Greater Cleveland. The two organizations provide free legal counsel for families at or below the federal poverty level facing eviction, as well as access to additional resources for food, utility assistance, and funding for rent. In 2021, the program expanded and added free eviction help to manage outreach and also provide additional legal counsel services. In 2022, the City approved the allocation of $1 million in ARPA funds to continue to provide these essential services. Since the start of the ARPA-funded legal representation program, 90 percent of evictions have been avoided. This is an especially salient equity issue in Cleveland, where 43 percent of eviction filings are made against Black residents and 83 percent against women. Investing in tenant legal representation programs can directly increase vulnerable residents’ housing security.

Detroit, Michigan

Since the start of the pandemic, Detroit has invested over $300 million in preventing evictions through rental assistance and legal representation. In 2022, the City enacted a RTC for tenants facing eviction and allocated $6 million in ARPA funds to create the Office of Eviction Defense. This was a significant advocacy win for low-income residents in Detroit that had been advocating for more legal protections from evictions since before the pandemic. The Office of Eviction Defense works with legal service providers to provide free legal services to tenant households in the City facing eviction. Qualifying households must have a gross income no higher than twice the federal poverty level. In 2023, the Office of Eviction Defense received $12 million in ARPA funds to continue to provide legal services, and an additional $12 million from a private foundation specifically to provide services for low-income families with children.

Milwaukee County, Wisconsin

In 2021, Milwaukee County voted to establish a universal tenant legal representation program using $1.8 million of its ARPA funds and a $1.5 million gift from the United Way of Greater Milwaukee & Waukesha County. The County designated the Legal Aid Society of Milwaukee and United Way to lead the program. In 2022, they established Eviction Free MKE, managed by the Legal Aid Society of Milwaukee, as an online tool to connect tenants to legal resources. The program provides eviction prevention support to individuals and families who are at or below 200 percent of the federal poverty guidelines in Milwaukee County. This includes ensuring tenants have support with appearances before judges, resolutions with landlords, and interpretation of eviction legality. Eviction Free MKE is facing a fiscal cliff and uncertainty for continued funding. Ending an impactful program can lead to a rise in eviction rates, increase homelessness, and strain the homelessness support system.

Kingston, New York

In November 2023, Kingston launched its program using $500,000 in ARPA funding. To qualify, residents must have a household income under 120 percent of the median income in Kingston. Eligible residents can receive legal services regarding pending evictions, eviction warrants, and significant housing repairs. Services are offered in Spanish and English. See our case study.

Complementary Policies

Tenant legal representation is most effective in concert with complementary policies that strengthen renter protections and prevent eviction, such as the following.

  • Emergency Rental Assistance: Rental assistance can provide financial aid and housing stability services to cost-burdened renters, many of whom are extremely low-income and/or people of color. These programs provide support for many renters across the country and address one of the primary causes for evictions. Jurisdictions offering rental assistance should note that many tenants may have trouble accessing resources without the aid of an attorney. Providing legal representation alongside rental assistance helps ensure that tenants can access rental assistance and provides another layer of protection if landlords refuse rental assistance payments or proceed with evictions despite receiving funds.
  • Tenant Unions: Supporting or facilitating tenant unions and associations can amplify the collective voice of renters while advocating for policy changes, fair housing laws, and better living conditions. Since 1997, the federal government has had the authority to allocate up to $10 million for tenant organizing in HUD assisted properties, although the funding has diminished over the years. Cities and states can allocate funding for tenant organizations and tenant organizing activities. Examples of local-level support include Washington D.C’s Office of the Tenant Advocate, which assists in the formation of tenant associations, and Austin,Texas, which funds tenant education and organizing through its city code enforcement budget. Beyond providing funding, local governments can enhance tenant rights to organize, as demonstrated by San Francisco’s recent legislation. This law requires landlords to allow tenant organizing activities in common areas, and permits tenants in buildings with five or more units to form associations. Some examples of other effective tenant unions include LA Tenants Union, United Tenants of Albany, and San Francisco Tenants Union. Notably, tenant advocates have pointed out that providing a right to counsel for tenants facing eviction helps embolden tenants to organize, since it can diminish the fear of facing a retaliatory eviction for any organizing activities.
  • Just Cause Eviction Protections: Just cause protections require landlords to have a valid reason, such as failure to pay rent, for evicting a tenant or refusing to renew their lease. These laws benefit low-income tenants by protecting renters from evictions when they are not at fault, discouraging tenants from self-evicting, and allowing renters to advocate for improved living conditions without fear of retaliation. Such a policy is interlinked with RTC: without counsel tenants may not know of this protection or be able to effectively assert it, and without protections such as just cause, tenant attorneys are more limited in the defenses they can assert.
  • Mediation: Mediation is a tool that can help reduce evictions by facilitating discussions between landlords and tenants to resolve disputes, such as nonpayment of rent. It allows both parties to work toward mutually beneficial solutions, such as extended payment plans, without resorting to court proceedings. Mediation, often combined with legal support and financial assistance, can prevent eviction filings, reduce legal costs, and preserve tenant-landlord relationships. This process addresses eviction filings that may otherwise be used as leverage for rent collection, offering a more constructive approach to housing stability. The Eviction Resolution Pilot Program in Washington State facilitated free mediation meetings with trained specialists at the King County Dispute Resolution Center, available to all tenants regardless of immigration status. This program, designed with equity in mind, served over 70 percent of households at or below 200 percent of the poverty level and over half of clients identified their race or ethnicity as non-white
  • Eviction Record Sealing: Coupling eviction record sealing with tenant legal services provides additional protection for vulnerable renters. Eviction filings can have lasting and permanent consequences. An eviction record on public and credit histories can prevent tenants from securing future housing. For low-income and marginalized renter populations, this impact extends beyond housing, affecting access to transportation, quality schools, and job opportunities. When an eviction record is sealed and removed from public view, it cannot be unsealed or sold to a third party like a credit company or another landlord. Yet such sealing often requires legal assistance. For instance, in Hennepin County, Minnesota, nearly 80 percent of tenants with lawyers leave court without an eviction record, compared with just 6 percent of unrepresented tenants.
  • Tenant Screening Protections: In addition to sealing eviction records, state and local laws can regulate tenant screening procedures to complement tenant legal services. Tenant screening protection policies can require landlords to use uniform screening criteria, consider applicants holistically, and prohibit rejection based solely on credit, criminal, or eviction histories. Shortening the look-back period for housing applications strengthens tenant protections, as current Fair Credit Reporting Act (FCRA) regulations allow screening companies to report eviction records that are up to seven years old. Reducing this timeframe would limit the impact of outdated eviction records on prospective tenants, ensuring fairer access to housing opportunities.
  • Eviction Diversion Programs: An Eviction Diversion Program is a coordinated approach that integrates multiple strategies including rental assistance, legal representation, mediation services, financial assistance, and social or behavioral services. This comprehensive array of services aims to resolve landlord-tenant disputes and avoid evictions outside the formal court system, preventing the progression of court cases. Successful programs require dynamic and robust partnership between governments, community organizations, landlords, and legal service providers.

Acknowledgements

This brief was initially researched and written by Joanny Leyva and Tulsi Patel of Estolano Advisors, with contributions to the final draft by Ashley Thomas of the Institute on Race, Power and Political Economy. We thank John Pollock of the National Coalition for a Civil Right to Counsel for his thoughtful review and feedback.

Resources

National Coalition for a Civil Right to Counsel

The National Coalition for a Civil Right to Counsel advocates for the right to counsel and has compiled resources for different legislative efforts, including tenant right to counsel. They are a great source for impact data and organizing resources as well as general information about legal representation.


National Low Income Housing Coalition

The National Low Income Housing Coalition provides a variety of resources for jurisdictions including a collection of statewide tenant protections, examples of just cause eviction legislation, and an interactive state map to view protections by state.