Yup, the programs could have been better implemented, and requiring action from the tenant (presumably to prevent landlords from claiming 'unpaid' rent on empty units) supposes more cooperation between tenants and landlord than is reasonable to expect.

The deadbeat tenants don't really escape their liabilities though. They've gone for so many months not paying and not pursuing aid. So when they're evicted, eventually, they owe so many months back rent to the landlord. I'm sure some will escape through bankruptcy, expatriation, new aid, etc, and that the annoyance (if not the cost) of pursuing the rest will be substantial. But anyone that actually realized a financial gain at the landlords expense through is going to face liens, garnishment, and seizures until they're square. If there really are tons of these people, it would seem like a good time to be in the collections business.