A lot of homeless people decline help because they have been harmed by people they have previously trusted in these shelters and housing. A lot of homeless women have been raped in homeless shelters and a lot of homeless people have had their things stolen from housing and shelters as well as having been beaten up. If these people don't feel safe in housing which is often the case, then the only place they can go is a park bench or the foot path, most of what you see is public spaces so where do you expect them to go? There's no where left.