Investing in Solutions, Not Sanctions: A Comprehensive Strategy for Addressing Homelessness in America

Good morning/afternoon,

To all esteemed government officials, policymakers, and distinguished members of this Committee,

My name is Rev. Catherine Christenberry, and I am here today as a concerned citizen and advocate from Ashland, Kentucky. While my roots are local, the issue I wish to address transcends geographical boundaries. I am here to present a comprehensive, evidence-based strategy for addressing homelessness across our nation—a strategy that is not only profoundly more humane but also demonstrably more fiscally responsible for the American taxpayer.

The Invisible Tax: The Cost of Our Fragmented Approach

For far too long, our national response to homelessness has been reactive and fragmented, inadvertently imposing what I call the "invisible tax" on American communities. This "tax" is the staggering financial burden we incur when we fail to adequately house our most vulnerable citizens.

Consider these critical points:

 * The Criminal Justice Treadmill: When individuals experience unsheltered homelessness, they often become entangled in the criminal justice system. Laws criminalizing essential life-sustaining activities—such as sleeping, eating, or resting in public—lead to arrests, citations, and incarceration. While the recent Supreme Court ruling in City of Grants Pass v. Johnson clarified that cities can legally enforce these bans, it does not make them effective policy or financially sound.

   * Think of the federal resources diverted: DEA agents responding to minor public drug use by someone with no home, federal marshals involved in clearing encampments, and court resources processing endless minor offenses. These are costs that escalate rapidly.

   * Jailing an individual, even for a few days, can cost hundreds of dollars per person, per day. For someone experiencing chronic homelessness, these repeated interactions can easily amount to tens of thousands of dollars annually in law enforcement, court, and incarceration costs. This is precious taxpayer money that could be invested in permanent, more effective solutions.

 * Overburdened Emergency Services: Without stable housing, individuals experiencing homelessness face higher rates of chronic illness, mental health crises, and substance use disorders. They disproportionately rely on our nation's most expensive healthcare options: emergency rooms and inpatient hospitalizations. A single ER visit can cost thousands, and a prolonged hospital stay tens of thousands. These are often for preventable conditions or those that could be managed effectively in a community health setting for a mere fraction of the price.

 * Lost Human Capital and Economic Drain: Beyond direct financial costs, we lose the productive capacity of our fellow citizens. When people are unhoused, they often cannot work, contribute to our economy, or pay taxes. Criminal records stemming from homelessness-related offenses become insurmountable barriers to employment and housing, perpetuating a costly cycle of dependency rather than fostering self-sufficiency.

This reactive, often punitive approach is a significant drain on federal, state, and local budgets. It is a system built on crisis management, not sustainable solutions.

A Bold, Unified Solution: The Comprehensive Integrated Service Hub

We have both the opportunity and, frankly, the imperative, to shift this paradigm. I propose a national initiative to incentivize and support the establishment of comprehensive, integrated service hubs in every county across America. These hubs would represent a single, dignified point of entry for individuals and families experiencing or at risk of homelessness, providing a full spectrum of services designed to move people rapidly from crisis to stability.

Imagine a centralized facility, a true community asset, offering:

 * Emergency Shelter and Rapid Rehousing: The bedrock of stability. Low-barrier emergency shelter quickly transitions into Rapid Rehousing, offering temporary rental assistance and case management to move people into permanent homes. This is not just a theory; it is a proven approach: studies show that 75-91% of households remain housed a year after participating. Programs like HUD's Continuum of Care already recognize this effectiveness. We can also explore diverse on-site or nearby housing solutions, such as well-managed tiny house communities, designated safe parking sites for vehicle dwellers, or partnerships for trailer park placements—creative, cost-effective options that avoid the pitfalls of traditional shelters.

 * Food Security and Nutritional Support: Daily hot meals, accessible food pantries, and nutritional education, addressing immediate hunger while promoting long-term health and reducing diet-related illnesses that burden our healthcare system.

 * Childcare and Comprehensive Educational Programs: Affordable daycare, after-school tutoring, GED preparation, vocational training, and financial literacy workshops. This is a direct investment in breaking the intergenerational cycle of poverty, fostering future taxpayers and productive citizens.

 * Integrated Substance Recovery and Mental Health Support: In-house counseling, peer support groups, and streamlined referrals to long-term rehabilitation. This proactively addresses the underlying issues that often exacerbate homelessness, thereby reducing costly arrests, hospitalizations, and recidivism.

 * Robust Employment Assistance: Resume writing, interview preparation, job placement services with local businesses, and even tool libraries for skilled trades. We empower individuals to find work and contribute meaningfully to our local economies.

 * Automotive and Transportation Services: Basic vehicle maintenance classes, repair assistance, and direct transportation aid (bus passes, gas vouchers). For many low-income families, a working vehicle is critical to employment and stability.

 * Comprehensive Healthcare Services: On-site or partnered clinics offering free medical and dental check-ups, vision care, and preventative health education. Shifting healthcare from costly emergency rooms to affordable, preventative care represents a massive taxpayer saving.

 * Essential Support and Emergency Needs: Distribution of clothing, winter gear, hygiene kits, diapers, and school supplies. These seemingly small interventions prevent larger crises and provide immediate dignity.

 * Access to Technology: Computer labs and digital literacy training, bridging the digital divide so individuals can apply for jobs, access benefits, and connect with vital resources.

 * Veterinary Care and Pet Support: Recognizing the profound bond many homeless individuals have with their pets, this service removes a significant barrier to accessing human services and ensures animal welfare.

This integrated approach is based on Housing First principles, which prioritize getting people into stable housing immediately, without preconditions. This model is not just compassionate; it is the most well-researched and demonstrably cost-effective model for ending homelessness. Communities that have embraced this model, like Houston, have seen dramatic reductions in their homeless populations, coupled with significant cost savings. For example, in Houston, between 2011 and 2023, they housed over 30,000 homeless individuals and reduced their homeless population by 62%.

The Federal Imperative: Investing in Solutions, Not Sanctions

Members of Congress, your role in this transformation is critical.

 * Repeal Federal Support for Criminalization: While many criminalization laws are state and local, federal policy and funding can inadvertently encourage them. We must examine federal mandates and incentives that push states towards punitive measures and instead prioritize federal funding for Housing First and comprehensive service models. This includes urging states to reconsider laws like Kentucky's Safer Kentucky Act, as the long-term costs far outweigh any perceived short-term public safety gains.

 * Champion Federal Funding for Integrated Hubs: Increase appropriations for programs like HUD's Continuum of Care (CoC) grants, Emergency Solutions Grants (ESG), and Housing Choice Vouchers (Section 8). We need a targeted federal initiative to provide seed funding and ongoing support for counties willing to develop these comprehensive hubs. This is not just about allocating money; it's about investing in a proven solution that yields measurable returns.

 * Incentivize Interagency Collaboration: Encourage federal agencies like HUD, HHS, DOJ, and Labor to create seamless funding streams and technical assistance programs that support integrated service models, breaking down the bureaucratic silos that often hinder effective solutions.

 * Promote Best Practices and Data Sharing: The federal government is uniquely positioned to collect and disseminate data on successful models, ensuring that states and localities can learn from each other and replicate effective strategies nationwide.

This is an unparalleled opportunity to redefine our national response to homelessness. It’s an opportunity to save billions of taxpayer dollars currently wasted on managing a crisis that could be solved. It’s an opportunity to empower our most vulnerable citizens to reclaim their lives, contribute to our communities, and realize the American dream.

Let us move beyond costly enforcement and towards compassionate, fiscally sound investment in our people. Let us pass resolutions that champion these integrated solutions and begin the work of truly ending homelessness, county by county, across the United States.

The Budget Equation: Crisis Management vs. Comprehensive Solutions

Let's now turn to the cold, hard numbers. As policymakers responsible for wisely allocating taxpayer dollars, it is imperative that we understand the true financial implications of our current approach versus the transformative potential of an integrated solution. This isn't just about compassion; it's about making the most intelligent financial decision for our communities.

Current Budget Plan: The Cost of Criminalizing Homelessness (Annual, per individual/recurrent)

Under our current de facto budget plan—one built on reacting to homelessness with punitive measures—the costs quickly escalate, often unseen as they are spread across various departmental budgets:

 * Law Enforcement & Incarceration:

   * Police Response: Repeated calls to address homelessness-related issues divert officers from other duties. Conservatively estimate $100-$300 per incident.

   * Arrest & Booking: Each arrest involves officer time, processing, and transportation. Estimated $150-$500 per arrest.

   * Jail Day Rate: In Kentucky, the average cost to keep someone in jail is about $105 per day.

   * Court Proceedings: Public defenders, court staff, judges' time for minor offenses can easily cost $500 - $2,000 per case, especially with repeat offenders or warrant issues.

   * Total for a Chronically Homeless Individual: For an individual frequently cycling through the system (e.g., multiple arrests, short jail stays, ER visits per year), these cumulative costs can range from $30,000 to over $80,000 annually per person. A study in San Francisco, for instance, found these costs to be as high as $80,000 per year per chronically homeless individual.

 * Emergency Healthcare & Medical Services:

   * Emergency Room Visits (Uninsured): A single, non-life-threatening ER visit can cost $1,500 - $3,000. Homeless individuals often have multiple visits per year for untreated conditions.

   * Ambulance Services: Each ambulance ride can cost $500 - $1,500.

   * Hospital Stays: Prolonged hospitalizations due to severe, untreated conditions can range from $5,000 to $50,000+ per stay.

   * Public Health Risks: Untreated diseases among unsheltered populations can lead to broader public health concerns, requiring expensive community-wide interventions.

 * Other Crisis-Oriented Costs:

   * Emergency Shelters (if available): While better than the streets, emergency shelter costs average $30 - $138 per person per day, with higher costs for family shelters. These are temporary solutions, not exits from homelessness.

   * Public Works/Cleaning Crews: Costs associated with cleaning up encampments.

   * Lost Tax Revenue: The direct economic loss from individuals unable to work and contribute to the tax base.

Total Annual Cost of Criminalization & Crisis (Illustrative):

While exact figures are difficult to pinpoint, experts widely agree that managing homelessness through crisis intervention costs taxpayers anywhere from $30,000 to over $80,000 per chronically homeless individual per year. This means if a county has, for example, 100 chronically homeless individuals, it could be spending $3 million to $8 million annually, just to maintain the status quo, without actually solving the problem.

Proposed Budget Plan: Investing in a Comprehensive Integrated Service Hub (Initial Capital + Annual Operating)

Now, let's contrast that with a strategic, upfront investment that yields significant long-term savings and truly solves the problem. Our proposed Comprehensive Integrated Service Hub, located in each county, represents a proactive investment in dignity and stability that ultimately saves taxpayer money.

I. Initial Capital Investment (One-Time Costs):

 * Land Acquisition: In areas like Ashland/Boyd County, a suitable parcel could range from $500,000 - $2 million.

 * Construction/Renovation of Central Structure: For a new purpose-built facility, estimates range from $1 million to $5 million+, depending on size and services.

 * Tiny House Community Infrastructure: A community of 20-50 tiny homes (including units, site prep, and utilities) could be $260,000 - $3.5 million+.

 * Camp Sites/Trailer Park Prep: For basic infrastructure like sanitation and power access, perhaps $50,000 - $200,000.

 * Initial Equipment/Furnishings: Computers, kitchen equipment, medical supplies, etc., $100,000 - $500,000.

Estimated Initial Capital Investment Range (Illustrative, per county): $2 Million - $10 Million+ (Highly dependent on scale and existing infrastructure.)

II. Annual Operating Costs (Per County Hub):

Once established, the ongoing operational costs for the hub's integrated services are demonstrably more efficient than the diffuse and reactive spending we currently undertake:

 * Staffing: This is often the largest component, ranging from $500,000 - $2 million+ annually for case managers, health professionals, and support staff.

 * Emergency Shelter & Rapid Rehousing: Average cost for rapid rehousing assistance and services is around $15,000 per client per year—a direct investment in permanent housing, saving far more in crisis costs.

 * Food Pantry & Meal Services: $50,000 - $250,000+ annually, often supplemented by donations.

 * Healthcare & Mental Health Services: Operating a free clinic can range from $250,000 - $500,000+ annually, significantly offsetting ER costs.

 * Childcare & Education: $100,000 - $500,000+ annually, depending on scale. (Average cost for infant childcare in KY is \sim9,685/year.)

 * Employment Assistance: $50,000 - $200,000+ annually for job coaches, workshops, and tool library maintenance.

 * Utilities & Maintenance: For a large facility and potentially tiny homes: $100,000 - $300,000+ annually.

 * Other Services (Automotive, Transportation, Pet, Tech, Seasonal): $50,000 - $200,000+ annually for these combined, often relying on volunteers and donations.

Estimated Annual Operating Cost Range (Illustrative, per county): $1 Million - $4 Million+

The Return on Investment: Why This is Cheaper for Taxpayers

Now, let's put it all together. While the initial capital investment for a comprehensive hub might seem significant, it is a one-time cost that builds infrastructure for a sustainable solution. The annual operating costs, when compared to the existing, hidden, and escalating costs of criminalization and crisis management, reveal the profound savings.

 * Direct Cost Savings: By reducing the number of individuals cycling through our jails, emergency rooms, and crisis services, we directly free up millions of taxpayer dollars. Studies have consistently shown that every $1 invested in Housing First can yield $1.44 or more in societal cost savings. This is money we can then reinvest in our communities, in education, infrastructure, or tax relief.

 * Increased Revenue: When we help people secure housing, employment, and better health, they become tax-paying citizens, contributing to our local and federal economies, rather than solely consuming crisis resources.

 * Improved Community Well-being: Beyond the dollars, the benefits are immeasurable: safer streets, reduced public health risks, stronger families, and a more vibrant, compassionate community. This isn't just a cost-benefit analysis; it's an investment in the human capital of Kentucky and the United States.

Phoenix House: A Blueprint for Hope and Action

As a concrete example of this proposed model, I present the blueprint for Phoenix House, a nonprofit, non-denominational shelter and ministry I envision for Kentucky. Our mission is to provide comprehensive, holistic support to homeless individuals, low-income families, youth, veterans, and marginalized members of the community, fostering stability, dignity, and empowerment.

1. Executive Summary

Phoenix House aims to be a beacon of hope, addressing not just immediate needs but also long-term challenges, creating a pathway to independence for those we serve. Our services target individuals and families experiencing poverty, homelessness, or trauma, ensuring no one is left behind. Through collaborative partnerships, innovative programs, and strategic resource allocation, Phoenix House is poised to make a transformative impact.

2. Mission and Vision Statements

 * Mission: To empower vulnerable and underserved individuals and families by offering holistic support that fosters dignity, hope, and independence. We exist to restore stability and nurture personal growth in our community, bridging the gap for those left behind by existing systems.

 * Vision: To create a community where every individual has the opportunity to thrive, free from the constraints of poverty, homelessness, or discrimination. Phoenix House envisions becoming a beacon of hope and empowerment, advocating for equity, support, and transformation.

3. Organizational Structure

To ensure sustainable operations and accountability, Phoenix House will adopt a hierarchical structure including a Board of Directors (for governance and oversight), an Executive Director (for leadership and operations), Program Directors (for specialized program management), dedicated Staff and Volunteers, and strong Community Partners.

4. Target Demographics

Phoenix House will serve diverse populations disproportionately affected by homelessness, as highlighted by HUD's 2023 Point-in-Time count (653,104 homeless nationwide):

 * Individuals experiencing chronic homelessness: Over 190,000 in 2023.

 * Families with Children: Nearly 1 in 4 people experiencing homelessness in 2023.

 * Veterans: Approximately 35,574 veterans experienced homelessness in 2023 due to complex factors.

 * Youth (under 25): Over 33,000 unaccompanied youth in 2023, facing unique challenges.

 * Racial and Ethnic Minorities: Disproportionately affected due to systemic inequities (e.g., Black individuals 37% of homeless vs. 13% of U.S. population; Hispanic/Latino 28% vs. 19%; Indigenous significantly overrepresented).

 * Victims of Domestic Abuse or Trauma: Many experience homelessness as a direct result of escaping violence.

 * Marginalized and Underserved: Including individuals with disabilities, LGBTQ+ individuals, and seniors.

5. Expanded Services Provided

Phoenix House aims to address every aspect of individual and family well-being by offering:

 * Emergency Shelter and Housing Assistance: Short-term housing, financial assistance for rent/utilities, and landlord partnerships.

 * Food Pantry and Meal Services: Daily hot meals, monthly food distribution, and nutritional workshops.

 * Childcare and Educational Programs: Affordable daycare/preschool, tutoring, adult education (GED, financial literacy).

 * Substance Recovery and Rehabilitation Support: In-house support groups, counseling, and referrals to long-term centers.

 * Employment Assistance: Resume writing, interview prep, tool library access, and job placement services.

 * Automotive Services: Preventative maintenance, basic repair classes, and vehicle assistance for work.

 * Healthcare and Mental Health Services: Free medical/dental check-ups, vision care, and counseling.

 * Seasonal and Emergency Needs: Clothing, winter gear, infant furniture, school supplies, hygiene kits, diapers.

 * Transportation Assistance: Bus passes, gas vouchers, and shuttle coordination.

 * Veterinary Care and Pet Support: Basic vet care, vaccination clinics, and pet food/supplies.

 * Access to Technology: Computer library for job applications, research, and skills training.

6. Market Analysis

 * Problem Statement: Kentucky faces critical challenges: high rates of poverty, homelessness (estimated 4,082 in 2023), and unemployment, with many lacking access to affordable housing, healthcare, and employment opportunities.

 * Solution: Phoenix House fills these critical gaps by offering integrated, individualized programs.

 * Competitive Edge: Our holistic approach, strong community partnerships, and focus on individualized care distinguish us, ensuring no one falls through the cracks.

7. Expanded Marketing and Outreach Strategy

Phoenix House will engage through: Community Partnerships, a strong Digital Presence, targeted Fundraising Campaigns (including online platforms and corporate sponsorships), and proactive Advocacy and Awareness initiatives (public panels, forums).

8. Expanded Budget Outline (Annual Estimate)

| Category | Projected Cost |

|---|---|

| Rent and Utilities for Shelter | $150,000 |

| Staff Salaries | $300,000 |

| Food and Supplies | $75,000 |

| Transportation Costs | $50,000 |

| Medical and Mental Health Services | $70,000 |

| Childcare and Education Programs | $40,000 |

| Automotive Services | $25,000 |

| Pet Care and Veterinary Clinics | $20,000 |

| Emergency Assistance Funds | $60,000 |

| Technology and Computer Library | $25,000 |

| Seasonal and Furniture Needs | $30,000 |

| Marketing and Outreach | $20,000 |

| Operational Contingency | $35,000 |

| Total Annual Budget: | $900,000 |

9. Funding and Sustainability Plan

Phoenix House will secure funding through: Grants (federal, state, private foundations), robust Donor Programs (monthly giving, planned giving), revenue-generating initiatives like a Thrift Store, and exploring Fee-Based Services on a sliding scale.

10. Timeline and Milestones

 * Year 1: Secure initial funding and land, establish operations, recruit core staff, launch emergency shelter and food services.

 * Year 2: Scale up key programs (childcare, education, employment), expanding capacity.

 * Year 3-5: Evaluate program impact, adjust services, and begin strategic planning for expansion or permanent housing solutions.

 * Year 6+: Develop new, innovative initiatives like permanent affordable housing units or mobile health clinics.

Space Requirements for Phoenix House

To provide a comprehensive range of services, Phoenix House will require a substantial facility.

Main Building Estimated Size: 20,000 to 40,000 Square Feet

This range accounts for various integrated services:

 * Emergency Shelter & Housing: 9,000 - 15,000 sq ft (for 50-75 individuals, including sleeping, bathrooms, common areas, case management).

 * Food Services: 2,800 - 6,000 sq ft (commercial kitchen, dining, pantry).

 * Education: 2,600 - 5,100 sq ft (daycare, tutoring, adult education classrooms).

 * Behavioral Health: 1,000 - 2,700 sq ft (counseling rooms, group meeting rooms).

 * Employment & Tech: 1,000 - 2,000 sq ft (computer lab, job placement offices, tool library).

 * Automotive Services: 1,000 - 2,000 sq ft (vehicle bay/workshop).

 * Health Services: 700 - 1,400 sq ft (medical/dental exam rooms, vet care).

 * Admin & Common: 3,000 - 6,700 sq ft (reception, offices, conference rooms, storage, restrooms).

Total Estimated Building Size (Range): Approximately 21,100 sq ft to 39,400 sq ft.

Land Requirements for Phoenix House

Beyond the main building, your vision for tiny house communities and safe parking significantly impacts the overall land needed.

 * Main Building Footprint: 0.5 - 1 acre.

 * Tiny House Community (example): For 20 units, 0.5 - 1 acre (including infrastructure).

 * Safe Parking Sites/Trailer Park (example): For 10 vehicles, 0.1 - 0.2 acre (including basic infrastructure).

Overall Total Land Estimate (Illustrative): 1.1 to 2.2 acres, or potentially more, depending on the scale of housing solutions and site layout.

Important Considerations for Land and Building:

 * ADA Compliance: All facilities and pathways must be fully accessible.

 * Circulation Space: Additional square footage will be needed for hallways and stairwells.

 * Outdoor Space: Sufficient outdoor land is needed for housing, green areas, and recreation.

 * Flexibility: Designing multi-purpose spaces will maximize efficiency.

 * Phased Approach: It may be more realistic to start with core services and expand as funding allows.

 * Existing Buildings: Renovating a large existing building could be more cost-effective.

 * Local Codes and Zoning: Crucially, consult Ashland/Boyd County codes for minimum room sizes, occupancy limits, and acceptable land uses.

Conclusion

Policymakers, the current budget plan for homelessness—the one based on criminalization and crisis—is a losing proposition. It's fiscally unsound, inefficient, and perpetuates suffering. My resolution proposes a smarter, more effective, and ultimately cheaper budget plan: a comprehensive, integrated service hub in every county. This is an investment in human dignity, a commitment to fiscal responsibility, and a pathway to a stronger, healthier U.S. for all.

Thank you for your valuable time and thoughtful consideration of this vital issue.

Sincerely,

Multifaith chaplain, 

Catherine Christenberry