KLC Step-by-Step Guide to Examine Homelessness & Affordable Housing in Your City

HOW TO
A STEP-BY-STEP GUIDE TO
EXAMINE
HOMELESSNESS
AND AFFORDABLE
HOUSING IN
YOUR CITY
KENTUCKY LEAGUE OF CITIES MEMBER & BUSINESS DEVELOPMENT
JULY 2022 EDITION
klc.org
800.876.4552

EXAMINE HOMELESSNESS
AND AFFORDABLE HOUSING
IN CONTENTS
YOUR CITY
Overview................................................................................................................................................................................ 3
What is Homelessness?...................................................................................................................................................4
Who Experiences Homelessness and Housing Insecurity?...............................................................................6
The Point-in-Time (PIT) and K-Count - “On the Street” Data in Your Own Community................... 10
Causes of Homelessness................................................................................................................................................ 11
Local Resources for Persons Experiencing Homelessness .............................................................................13
Affordable Housing: A Commonwealth Crisis.......................................................................................................15
Who Gets Housing Funding, and How Can Cities Support the Process?..................................................18
Can My City Use American Rescue Plan Act (ARPA) Funds for Homelessness and Housing?...... 21
Grants................................................................................................................................................................................... 22
Attracting Affordable Housing Developers........................................................................................................ 23
Six Steps to Get Started in Your City ................................................................................................................... 25
Helpful Contacts............................................................................................................................................................. 28
Preferred Terminology, Acronyms, and Glossary of Terms.......................................................................... 31
Document and Audiovisual Links............................................................................................................................ 32

GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
OVERVIEW
Most people experiencing homelessness in Kentucky are not highly visible. While they include people
on the street or sleeping under a bridge, most people who are experiencing homelessness are living in a
car, doubled up with someone else, or bouncing from place to place. Beyond that, there are those that
are homeless for all intents and purposes because they live in dilapidated homes they cannot afford to
repair. The face of “homelessness” is not what you think, and that is the most important point for anyone
concerned about homeless and housing issues to understand.
View a video profile about a Kentuckian who overcame homelessness - “You Never Know Who’s Homeless”
City leaders want solutions. At the same time, cities must be practical, visionary, and creative.
Homelessness and affordable housing affect most every city in Kentucky and are challenges that need to
be addressed by local leaders. In 2021, the Kentucky League of Cities (KLC) endeavored to research and
present valuable information to KLC members about homelessness, housing insecurity, and affordable
housing. The effort included our first Homelessness Summit: Housing and Hope in November 2021. As an
ongoing initiative, KLC continues to provide practical and useful information, education, and contacts.
While cities do not directly provide a lot of the services to individuals experiencing homelessness, they can
identify and support those services that exist, and they can serve as a community convener.
City officials can educate themselves as to what their community looks like in terms of affordable housing
stock, job wages, and can begin to look at ways to attract projects in their city that address the lack of
housing.
Professionals in the homeless/social services sectors encourage city leaders to act because the local
challenges of homelessness and housing will not be resolved without some level of involvement from local
leaders. One Kentucky professional said, “It has been my experience that if elected leadership doesn’t care,
nothing really is impactful over a long period of time, and the system doesn’t change.” Continued progress
is needed and is possible when people and organizations work to make a difference. While homelessness
looks different in each community, it is a reality. Another professional stated, “Local government leadership
is essential to addressing any community issue. Homelessness is no different. Local government leaders are
uniquely qualified to consider issues from a holistic perspective and to leverage resources others cannot.”
So, what is the role for cities regarding homelessness? The first step is recognizing and acknowledging the
problem.
Refer to the Preferred Terminology, Acronyms, and Glossary of Terms.
“Effectively ending homelessness means that the community has a response system
that is able to prevent homelessness from happening in the first place, acting to
ensure people are rehoused quickly when homelessness does occur, and the supports
necessary to ensure homelessness does not occur again.”
- Polly Ruddick, Director, Office of Homelessness Prevention & Intervention
Lexington-Fayette Urban County Government
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GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
WHAT IS HOMELESSNESS?
Homelessness is a rare occurrence, and it isn’t what most people think it is. Kentucky’s most recent
statistics paint an abstract picture that includes social and human issues, unaffordable housing, and
disconnected systems of localized service providers. In every region of our commonwealth, there are
organizations doing great work, yet there remains a stigma associated with individuals and families
without a home and even those providing homeless services. It is a reality that homelessness exists in
every community in Kentucky. Whether it is highly visible or not, it impacts health care, education, law
enforcement, fire and EMS services, code enforcement, economic development, housing, and overall city
management. And it impacts people.
Persons experiencing homelessness are often hard to identify in that others may have no idea that they are
without a home. Typically, when we think homeless, we envision a person living outdoors on the streets,
in parks, hidden encampments, and occasionally in hotels or shelters when resources can be provided. But
there are thousands of people in Kentucky “couch surfing,” living in cars, and moving from place to place
without a permanent home.
A Commonwealth Issue – Urban, Suburban, and Rural
Each winter, Kentucky participates in the U.S Department of Housing and Urban Development’s (HUD)
annual Point-in-Time (PIT) count. The PIT occurs on one night at the end of January. In 2021, the count
was not conducted due to COVID. In 2022, the count was moved to February due to weather and ongoing
COVID concerns. The count is an effort to identify the number and characteristics of people staying
in emergency shelters, transitional housing programs specifically for people who are homeless, and
those sleeping outside or in other places not meant for regular human habitation (e.g., cars, abandoned
buildings). It also includes data supplied by services and nonprofits (including churches) providing shelter
to those experiencing homelessness.
As of January 2020 (most recent data), Kentucky Statistics Show
An estimated 4,011 people experience homelessness on any given day. More than 600 were individuals
experiencing chronic homelessness.
• Public school data reported to the U.S. Department of Education during the 2018-2019 (most
recent) school year shows that an estimated 24,177 public school students experienced
homelessness over the course of the year.
• One in 14 Kentucky children under age six are homeless.
• According to the National Alliance to End Homelessness, there are 2,397 emergency shelter beds in
Kentucky (2019). It is important to note that emergency shelters are not available in every Kentucky
county, and many shelters only serve certain genders and household types (e.g., women and
children only, men only) and have other types of restrictions.
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GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
THE SPECTRUM OF HOMELESSNESS
Chronic Homelessness – Chronic homelessness refers to persons most like the stereotyped profile
of the homeless who are likely to be entrenched in the response system and for whom emergency
shelters and the streets are more like long-term housing rather than an emergency arrangement. These
individuals are likely to be older and/or have much higher rates of mental health and physical disabilities,
including substance use disorders. These are high utilizers of local first responder services. While people
experiencing chronic homelessness are those most often stereotyped as being “the homeless,” they
accounted for only 11% of those who were included in the most recent PIT count.
Transitional Homelessness – The majority of those experiencing homelessness enter the homeless
response system only once and for a shorter period of time. Such persons are likely to be younger, have
become homeless because of a catastrophic event such as loss of employment and/or excessive medical
expenses, have been forced to spend time in an emergency shelter, and/or lack the support network to
help during their housing crisis. The general public is less likely to see these households and less likely
to connect this situation with the stereotyped profile of homelessness. Even though these individuals
may never experience literal homelessness again, they are more likely to continue to experience housing
instability.
Episodic Homelessness – Households that frequently experience homelessness typically have inconsistent
income, mental health issues including substance use disorder, and a lack of ongoing support systems.
Beyond the emergency shelter system, those experiencing homelessness often live in cars, encampments,
with other people, in public/private spaces, or in hotels/motels. Among individuals experiencing
homelessness nationally, one in two are unsheltered, meaning they are sleeping in locations not meant for
human habitation.
HOMELESSNESS AND HOUSING INSECURITY
Acknowledge, Know, Act
Acknowledge that the problem exists.
• The problem is real.
• The problem impacts real people, real families, and real communities.
• The solution will take all of us working together.
• The solution depends on our resolve and commitment.be/Htsb804iDRE
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GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
WHO EXPERIENCES HOMELESSNESS?
• Someone’s Parent
• Someone’s Sibling
• Someone’s Child
People are often surprised that most people experiencing homelessness aren’t who you would expect:
• A substitute teacher who lost her apartment because her rent became unaffordable;
• A 19-year-old who recently aged out of the foster care system and had no family support; or
• A divorced dad who is paying child support and housing for his family but can’t afford housing for
himself.
Because Kentucky ranks high nationally in homeless families with children, a lack of family shelters and
affordable family housing units are among the most urgent dimensions of today’s local homelessness
crisis. Homelessness and housing instability have increased in school aged children’s families and in
English as a second language households. Since 2014, there has been a steady rise in people made
homeless by being victims of domestic violence. The prevalence of these significant subpopulations of the
homeless, many of whom have experienced trauma, underscores the increasing need for specialized care
that is “trauma informed.”
Data from the Vulnerability Index-Service Prioritization Decision Assistance Tool (VI-SPDAT) notes that
over half of homeless and unsheltered individuals reported at least one chronic health condition (e.g.,
kidney, liver, heart, emphysema, diabetes, asthma, cancer, hepatitis, and tuberculosis).
In recent years, service providers in Kentucky have seen spikes in homelessness among the elderly,
primarily because many live on social security and can’t afford rent or home repairs, bills, food, and
medicine.
SUBPOPULATIONS
Children and Youth
In addition to students staying in emergency shelters or sleeping outside, Department of Education data
also includes students who are in “doubled-up” or “couch-surfing” living situations where they lack safe,
stable housing. Such housing instability can have a significant impact on a student’s ability to learn.
The statistics are sobering. Kentucky experts say that:
• A homeless child is four times more likely to become a homeless adult.
• High school aged girls experiencing homelessness are more likely to become pregnant.
• Children experiencing homelessness have an increased risk of social isolation, anxiety, unhealthy
sleep, and substance misuse.
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GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
• One study stated that over 70% of homeless children reported drug or alcohol abuse disorders.
• Other research found that 42% of homeless high schoolers experienced bullying, and one in three
had attempted suicide.
• On average, students in mobility move seven to eight times per year and are two to three years
behind academically.
Educators stress that the statistics don’t change whether children are living in a shelter, in a car, or
whether they are doubled up.
The McKinney-Vento Homeless Assistance Act (MV) is a federal law that requires public school districts
to identify children and youth experiencing homelessness and remove all educational barriers in order
to provide these students with academic continuity and consistency. The McKinney-Vento Act defines
homelessness as “lacking a fixed, regular, or adequate nighttime residence.” Typically, schools capture
data relating to families and children in transition.
All public schools must implement the McKinney-Vento Act; however, funds are limited and competitively
awarded. As a result, MV represents an unfunded mandate for school districts. Only 11 Kentucky school
districts received funding last year. A study by the Institute for Children, Poverty, and Homelessness noted
that 58% of America’s rural students are not covered by the McKinney-Vento Act because of limited funds.
Districts depend on other sources, such as grants, United Way funds, and their own school budgets, to
help deliver services to students in housing transition or doubled up. Fortunately, the American Rescue
Plan Act will add significant funding to support the McKinney-Vento Act.
Learn more about MV.
Professional educators say identification represents the greatest challenge in providing services to these
students. Ninety percent of homeless families and 98% of the public do not know, misunderstand, or fail
to recognize the educational definition of homelessness.
View the most recent (2020-21) list of Kentucky Homeless Coordinators by School District from the
Kentucky Department of Education.
PEOPLE YOU KNOW COULD BE HOMELESS
View video profiles of Kentuckians who have experienced homelessness and
found local resources to turn their lives around.
Video: You Never Know Who’s Homeless
Video: Profile – Homeless Children and Youth
Video: On the Edge of Hope – Shelbyville’s Veteran’s Village
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GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
Veterans
It is estimated that there are more than 400 homeless veterans at any given time in Kentucky.
The Kentucky Department of Veterans Affairs (KDVA) Homeless Veterans Program gets homeless
veterans off the streets and provides assistance to those at imminent risk of homelessness by connecting
them with resources across the state. The KDVA webpage includes an intake portal where personal
information on a veteran may be submitted for assistance. Homeless Veterans - Kentucky Department of
Veterans Affairs
Resources through KDVA include but are not limited to:
Immediate needs such as food, clothing, and access to shelter
Access to homeless veteran providers
Assistance with rent and utilities
• A veteran can contact the National Call Center for Homeless Veterans at (877) 4AID-VET (877-
424-3838) for assistance. If veterans do not have access to a phone or the internet, only then can
they visit their closest VA medical center without calling in advance. For more information, visit
the VA website. VA Homeless Program
• The Kentucky Housing Corporation (KHC) also has programs and specialized services for veterans.
Veterans Emerging Towards Transition (VETT) provides housing vouchers to homeless veterans
within the 87 counties served by KHC.
• For more information, call (502) 564-9946.
• Louisville Coalition for the Homeless – Bed Referral: (502) 637-2337.
• There are also several nonprofit organizations in Kentucky specifically serving veterans. KLC
profiled the Veteran’s Village in Shelbyville, at the November 2021 Homelessness and Housing
Summit. Learn more about the program here.
VETERAN’S CLUB
Visit the website Veteran’s Club: About Us: Contact Us (veteransclubinc.org)
Veteran’s Club is a Kentucky-based program that works to help veterans
receive housing, treatment, and job training.
Mission Statement: To provide connection, healing, recovery, and housing
for the veteran community.
Vision Statement:
* To provide healing to veterans and their families through equinefacilitated
mentoring.
* To provide housing and programming for homeless veterans through the
Veterans Village Healing and Recovery Community.
* To provide connection and support through family outreach, vocational
training, and recreational therapy.
CONTACT:
Jeremy Harrell
Veterans Village
veteransclubinc.org
502.310.2303
jharrell@veteransclubinc.org
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GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
Elderly
By 2030, more than 74 million Americans will be 65 or older. Unfortunately, one of the fastest-growing
challenges among U.S. seniors is housing instability. Complicated by a myriad of health and other issues,
homelessness is a real threat to seniors and communities.
According to the National Coalition for the Homeless, increased homelessness among elderly persons is
largely the result of poverty and the declining availability of affordable housing. There are at least nine seniors
waiting for every one occupied unit of affordable elderly housing nationwide. Furthermore, the waiting list
for affordable senior housing is often three to five years. In addition to elderly persons, studies across the U.S.
have shown a clear upward trend in the proportion of “older” persons (aged 50-64) among the homeless
population. This is a group that frequently falls between the cracks of governmental safety nets.
There are all types of reasons any person may become homeless, but there is always one common
denominator – lack of affordable housing.
MABEL’S STORY
Mabel is now a 71-year-old central Kentuckian living on social security. She worked her whole life but is not in
good health. She has no children or immediate family. Her small, Section 8 subsidized apartment was her oasis.
Her out-of-state niece claimed to have lost her job and asked to move in with her, which she allowed. Come
to find out, her niece was a drug dealer. Mabel had no idea. Police arrested her at Mabel’s apartment, and as a
result, Mabel was evicted. She will never qualify for affordable housing assistance again provided by the Public
Housing Authority (PHA) because felony crimes were committed in her home. She is now living in a shelter. She
is homeless.
For any person experiencing it, homelessness is not only a challenge but often a traumatic experience. For
elderly people experiencing housing insecurity, this only exacerbates financial, health, and social challenges
of aging.
It’s not surprising that elderly people who are homeless will likely present increasing challenges for
behavioral health and medical systems, including local EMS, community services, and hospital resources.
Studies have demonstrated that allowing an individual to remain chronically homeless can cost taxpayers
as much as $50,000 annually.
With so many seniors living in poverty or on the edge of poverty, housing, medicine, or food become
choices instead of necessities. Do you know what your elderly relatives live on? For many, social security
is their only safety net. Subsidized senior housing is available at age 62, and Medicare and Social Security
benefits are available at age 65. Kentucky ranks 45th in Social Security benefits. More than 618,000 retirees
take Social Security, with an average 2021 benefit of around $17,500 for the full year. If a senior lives solely
on Social Security, even with subsidized housing costs, it’s not easy to make ends meet.
Many people want to stay in their homes but cannot take care of their properties due to upkeep and tax costs,
much less afford a new roof or a repair. This is something that has a direct impact on cities as properties fall
into disrepair and blight.
Finally, statistics from the U.S. Census revealed that more than 15 million adults, or nearly one in six
Americans aged 55 and older, are childless. The levels of childlessness among adults are expected to
increase, meaning that more older people will be “on their own” in numbers like never before.
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GUIDE TO EXAMINE HOMELESSNESS AND
AFFORDABLE HOUSING IN YOUR CITY
THE POINT-IN-TIME (PIT) AND
K-COUNT ‘ON THE STREET’ DATA
IN YOUR OWN COMMUNITY
Each year, the state conducts a statewide Point-in-Time (PIT) count of sheltered and unsheltered people
experiencing homelessness on a single night in January in all Kentucky communities. Cities and individuals
can help with the effort.
HUD requires the annual count of the sheltered homeless and a count every other year for anyone that
is unsheltered. In Kentucky, we conduct both the sheltered and unsheltered count annually. The count
includes people living in emergency shelters, transitional housing, and hotels/motels paid for by a
charitable organization. Also included are unsheltered individuals sleeping in places not meant for human
habitation, such as outside, in a vehicle, in a blighted or abandoned building, or in a tent. The thousands of
individuals couch surfing, doubling up, or living at someone else’s residence are not included in this count.
The count for most of Kentucky is called the K-Count. It is a critical effort because it aims to demonstrate
the housing services that each community needs for those experiencing homelessness. K-Count helps
HUD determine how much federal funding will be awarded to each community for homeless programs and
allows service providers and professionals to monitor trends and progress over time.
Typically, in a community it is service providers who organize the K-Count. Volunteers go in small teams,
including a social/community services professional and hopefully a law enforcement professional. If you or
your city staff would like to participate in this annual event, contact the Kentucky Housing Corporation or
the Homeless & Housing Coalition of Kentucky.
YOUR CITY CAN ASSIST WITH THE ANNUAL
POINT-IN-TIME COUNT IN YOUR COMMUNITY
For more information, contact:
Cassie Carter, Housing Program Manager
Homeless and Housing Coalition of Kentucky (HHCK)
502-223-1834, ext. 106
ccarter@hhck.org
www.hhck.org.
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GUIDE TO EXAMINE HOMELESSNESS AND
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CAUSES OF HOMELESSNESS
There is only one.
The lack of affordable housing is the cause of homelessness. The inability to maintain housing is often
due to insufficient income and the lack of support. A person becomes homeless as a result of traumatic
life events in which the individual and/or family does not have the correct support systems in place to
maintain their housing. It could be the loss of a job, medical bills, a divorce, domestic violence, a sudden
change in mental health, or increased physical disability needs. Truly, any event can cause an individual
and/or family to become homeless. It can even be a small event that rippled into a series of events that,
without the correct supportive services, lead to becoming unhoused.
During the 2022 Point-in-Time count, some individuals surveyed stated that their rents had gone up
during COVID, forcing them out of their homes.
People are all different. No individual has the same path to becoming unhoused; therefore, housing
interventions should always be built with variety in mind. One person may need a few weeks to regain
employment, while another person may need subsidized housing and long-term supportive services. The
bottom line - there is one constant and essential solution, affordable housing.
Shelters
Shelters and short-term solutions are very different than considerations for developing affordable housing
stock in your city.
Housing and Social Services Work in Tandem
Many successful programs in Kentucky and across the nation serve those experiencing homelessness with
a model that seeks to house first, followed by individualized supportive services to maintain housing. This
can be referred to as “recovery in place.” Think of it in basic terms – before a person can thrive, he or she
needs a place to sleep, eat, bathe, go to the bathroom, and rest. The goal is to provide a stable and safe
environment, removing the stress of being unhoused before engaging in any services. Self-sufficiency is
always the end goal, but all individuals are unique, and some may need continuous support for the rest of
their lives.
Barriers to Shelter
It is important to remember that emergency shelters are not the ultimate solution to homelessness. Still,
they are an essential part of any effective response system so that people have a safe place to stay while
permanent housing can be identified. Your city may have some facilities or shelters that present barriers
for those experiencing homelessness. When assessing your community’s resources, it’s important to know
what requirements exist for each facility. These requirements are typically intended to protect the primary
population being served but, in some instances, are unnecessary.
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GUIDE TO EXAMINE HOMELESSNESS AND
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Barriers can include things like no men, no women, no families, no pets, not accepting an impaired person
(drugs/alcohol), requiring religious program participation, or far-reaching criminal background checks
that are unrelated to a person’s ability to stay in a shelter without harming anyone else. This becomes
especially important to consider during cold weather months, during which time temporary “warming
centers” may be an option for your community.
It’s also notable that many individuals/households with full-time jobs (including city employees) qualify
for housing programs and many more are already housing insecure with only “one paycheck away” from
becoming homeless.
KEEPING PEOPLE AND PROPERTY SAFE
Many cities post “Park Closes After Dark” signs in their city parks to prevent persons from gathering
or sleeping. In order to do this, the city’s parks board can approve an ordinance. Although the park
is public property, this gives law enforcement the authority to ask persons to leave the park after
dark or during closed hours. For sample verbiage or more information, contact KLC Municipal Law
at 800.876.4552.
If cities take this measure, they should consider where unhoused individuals could go.
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GUIDE TO EXAMINE HOMELESSNESS AND
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RESOURCES FOR PERSONS
EXPERIENCING HOMELESSNESS
City employees are often the first to encounter persons experiencing homelessness. Though encounters
can be many different scenarios, one easy step cities can take is to have a listing of services that are
available.
Various agencies provide listings of services. Most service providers are listed by Area Development
District (ADD) or region. While the contact names will change, most agency contact listings will not
change. These links will provide a starting point for local services whether individuals need social, mental
health, or addiction services, or housing-related resources.
Coordinated Entry Lead Agency Contacts by ADD District (2022)
Homeless & Housing Coalition of Kentucky contacts for emergency shelter, domestic violence, and
emergency rental assistance.
Kentucky Housing Corporation (KHC) Community Resource Guide is a database listing many local services
by county.
Graphic provided by Jacqueline S. Long Director of Housing and Grants,
Mountain Comprehensive Care Center
A person experiencing homelessness is in crisis. A goal should be to think about persons experiencing
homelessness and look at current local and regional wraparound services. As part of the process, ask
homeless individuals what they need.
To assess what exists locally, invite community stakeholders to participate in a meeting to educate
each other as well as city officials as to what exists. This group could include existing homeless services
providers, social services providers, nonprofits, businesses, schools, jails, county attorney, judges, soup
kitchens, food pantries, veterans’ organizations, churches and the ministerial association, public libraries,
postal workers, utilities and code enforcement staff, police, fire, EMS, other first responders, hospitals,
clinics, and mental health providers. And, it bears repeating, the group should also include persons who
have experienced housing insecurity if that is possible and appropriate.
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GUIDE TO EXAMINE HOMELESSNESS AND
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Exercise: Where Are Your Services?
Think about housing and homelessness resources in your city/county/region.
Jot down a quick list of services for individuals living on the street or in encampments.
____________________________________________________________________________________
____________________________________________________________________________________
Where are they located? _______________________________________________________________
Do you have contacts? ________________________________________________________________
Are you familiar with intake procedures?
____________________________________________________________________________________
____________________________________________________________________________________
Do your shelters accommodate:
Yes
No
q q Men
q q Women
q q Children
q q Families
q q Pets
q q Persons in addiction
Make a list of local services with contacts, addresses, and phone numbers for:
Food _____________________________________________________________________________
Domestic violence __________________________________________________________________
Veteran’s programs/shelters _________________________________________________________
Social services _____________________________________________________________________
Mental health ______________________________________________________________________
Does your city offer any type of hotel/motel or apartment conversion program for homeless
individuals?
What is its process?
____________________________________________________________________________________
____________________________________________________________________________________
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GUIDE TO EXAMINE HOMELESSNESS AND
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AFFORDABLE HOUSING: A CRISIS
IN THE COMMONWEALTH
The current housing and building market is good for sellers but not buyers or renters. The demand for
all types of housing continues to be a challenge for cities across Kentucky, and there are huge gaps
statewide for affordable housing. In fact, studies from 2017-2019 estimate that Kentucky is short anywhere
between 78,000-100,000 affordable homes to rent. COVID has only made it worse. However, the good
news is that there is a statewide system and strategies underway to respond to and prevent homelessness
through the Kentucky Housing Corporation, the state, and other partners.
Basic Data
Housing insecurity is real in every county and community in Kentucky. These are individuals who may be
“one paycheck away” from being removed from their homes. One example is people who own a home but
may not be able to maintain upkeep or repairs – often elderly persons.
Each city has its own unique housing needs. For some communities, the need is for single-family housing.
Some cities do not have enough of any type of housing. For most Kentucky communities, there is not
enough affordable housing, particularly for renters and low-income residents.
Who are these people? They often work at your restaurants, big box stores, groceries, retail, healthcare
facilities, childcare centers, and some may even work for local governments.
Housing and Urban Development (HUD) defines affordable housing as housing in which the occupant pays
no more than 30 percent of gross income for housing costs, including utilities.
For people who rent:
• 40% of all Kentucky households report spending over 30% of their income on rent;
• 79% of Kentucky households (30% AMI and below) report paying over 30% of their income on rent; and
• 66% of Kentucky households (30% AMI and below) report paying over 50% of their income on rent.
Available rents have increased 7.5% in the last 12 months, and a June 2022 CBS News report stated that
rents nationwide have increased by 15.2%.
This means these renters have very little left for food, medicine, clothing, transportation, and other
necessities.
Why? Because the “fair market” rent is not the actual cost of rent.
Using an example from one Kentucky county, here’s a breakdown for a single renter:
Average renter hourly wage: $17.42
Affordable rent for this person $906
Actual average market rent $1,001
Hourly earnings over rent commitment (to pay all other expenses) $3.42
This means that only $3.42 of this person’s hourly wage goes to food, transportation, utilities, childcare, and all other
necessities.
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GUIDE TO EXAMINE HOMELESSNESS AND
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EKU/KLC PARTNERSHIP STUDY – A HOUSING AND HOMELESSNESS
SNAPSHOT FOR EVERY KENTUCKY COUNTY
T
The Kentucky League of Cities has partnered with the Eastern Kentucky University (EKU) Department
of Government to provide a detailed snapshot of homelessness and housing in every Kentucky county.
The succinct and reader-friendly research includes data on housing affordability, wages, market rents,
number of renter households, the income required to afford housing, and more. It also looks at 2022
statistics on homeless individuals for each county, including children and veterans. This information is
vital for cities and communities to accurately understand their housing gaps. Ideally, the data should
be shared with other local officials, business leaders, developers, service providers, and others in
the community seeking to address affordable housing and housing insecurity. To find your county
snapshot, go here.
KENTUCKY CENTER FOR STATISTICS
Another excellent source for housing, homelessness and many other types of information is the
Kentucky Center for Statistics. The center has the ability to create hyper-local and organization or cityspecific
reports upon request for any city. For more information, contact Marketing Analytics Director
Jessica Fletcher, MPA or Research Analyst Sam Keathley. Go here for more information.
The affordable housing shortage in Kentucky is especially hard for extremely low-income (ELI) Kentuckians
whose incomes are at or below the poverty guideline of 30% or their area median income (AMI).
Data from the National Low-Income Housing Coalition website shows that 66% of extremely low-income
renters in Kentucky have a severe cost burden. Go here to enter your city’s zip code to see affordable
home availability.
For some perspective, the U.S. Health and Human Services (HHS) releases poverty guidelines for all 48
contiguous states. The 2022 guideline for one person is $13,590, a household of four is $27,750, and a
household of eight is $46,630. The 2022 guidelines here.
Help Through COVID Funding
The good news is that pandemic funding created additional opportunities.
In February 2022, the Commonwealth of Kentucky, in partnership with the Kentucky Housing Corporation
(KHC), launched the Team Kentucky Homeowner Assistance Fund, a program that can help homeowners
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impacted by the pandemic rebound and avoid foreclosure.
Kentucky funded the program through $85.4 million in federal American Rescue Plan Act (ARPA) funds
that the commonwealth received to protect homeowners impacted by COVID-19.
Qualifying homeowners can visit TeamKYHAF.ky.gov to apply for up to $35,000 in assistance to help
with delinquent mortgage payments, property taxes, homeowner’s and/or flood insurance, homeowners
association fees, and utility costs. If approved, the funds will be paid as a grant directly to mortgage
servicers, utility companies, county property tax administrators, insurance agencies, or homeowners
associations.
Each applicant will be assigned to a housing counselor who will help walk the homeowner through the
submission process, including gathering and signing documents and responding to questions.
Before applying, homeowners should contact their mortgage servicer to weigh their options and see
which program would provide the best long-term solution.
A detailed description of the program can be found at ProtectMyKYHome.org. Kentucky Homeownership
Protection Center Welcome (protectmykyhome.org)
The program is available until all funds are expended or September 30, 2025, whichever comes first.
In addition, Kentucky renters who suffered financially due to COVID-19 have access to the $264 million
Healthy at Home Eviction Relief Fund, which is still in place to assist them with housing and utility
payments. To learn more and apply for assistance, visit TeamKYHHERF.ky.gov. Healthy at Home Eviction
Relief Fund (ky.gov)
EXERCISE:
Do you know?
The average rent in your city?
The average hourly wage in your city?
Affordable rent based on an hourly wage as compared to actual average rent?
The overall number of available housing or apartment units?
Think about the people in your city who work in big box stores, fast food, healthcare assistance, and
childcare. Can they afford their rent? If not, they are housing insecure.
EXERCISE:
Review the number of blighted properties your city has taken action upon in the last year or two. For
some, were there circumstances where the person needed repairs they could not afford? Are you
aware of the Kentucky Housing Corp. funds for these types of repairs? HOME TBRA - HOME Investment
Partnerships Program (kyhousing.org)
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WHO GETS HOUSING FUNDING,
AND HOW CAN CITIES SUPPORT
THE PROCESS?
Table 1
Graphic from KHC
Table 2
Graphic from KHC
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GUIDE TO EXAMINE HOMELESSNESS AND
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Understanding the Kentucky Housing Corporation (KHC)
The Kentucky Housing Corporation (KHC) response is critical for both housing and homelessness
in Kentucky. The mission of KHC is to invest in quality affordable housing solutions for families and
communities across Kentucky.
KHC leverages private, federal, and state funding with financing sources and disperses them to services
and housing providers. Sources include private tax credits, tax-exempt bonds, Fannie Mae/Ginnie Mae,
HUD programs, Treasury COVID relief programs, and Kentucky Affordable Housing Trust Fund.
It is important to understand that KHC can help communities with homelessness and housing issues in
many ways. For most HUD programs, cities are not direct recipients. Most KHC programs target nonprofits
and/or for-profit housing developers.
In addition, KHC funds the Healthy at Home Eviction Relief Rent & Utility Assistance, Section 8 Housing
Choice Vouchers (87 counties) and housing for persons with HIV/AIDS.
The term Continuum of Care (COC) means a group of representatives from relevant agencies within a
geographic area tasked with coordinating and planning the implementation of services for homelessness
and housing insecurity.
The Continuum of Care consists of HUD-funded and non-HUD-funded key stakeholders who provide a
continuum of housing and services. An important role for cities is to get to know your local providers,
understand local needs, and be supportive when you can in helping them get funds through the
Continuum of Care.
At a minimum, the Continuum of Care systems encompass the following stakeholders: outreach,
engagement, and assessment; shelter, housing, and supportive services; and prevention strategies.
Relevant organizations include nonprofit homeless assistance providers, victim service providers, faithbased
organizations, governments, businesses, advocates, public housing agencies, school districts, social
service providers, mental health agencies, hospitals, universities, affordable housing developers, law
enforcement, and organizations that serve veterans and homeless and formerly homeless individuals.
For Kentucky, there are three Continua of Care – Lexington, Louisville, and the Balance of State (BoS),
which includes 118 counties. KHC oversees and administers Kentucky’s BoS Continuum funding. This is
important for cities to understand because most of the housing and homelessness-related funding comes
through this Balance of State Continuum of Care.
Cities outside of Fayette and Jefferson counties will need to work with KHC and local providers and
stakeholders to access Continuum of Care funding.
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Table 3
.
Graphic from KHC
There is a Kentucky BoS CoC Advisory Board which includes representatives from all Area Development
Districts (ADDs). Each ADD identifies its priorities. For cities, it’s important to know and discuss local
and regional needs with the Coordinated Entry Local Prioritization Lead for your ADD region. This is the
group that identifies and establishes priorities for KHC’s funding.
Go here for a list of Coordinated Entry Leads. Coordinated Entry Local Prioritization Community Lead
Agencies (4).pdf
Table 4
Graphic from KHC
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CAN MY CITY USE AMERICAN RESCUE
PLAN ACT (ARPA) FUNDS FOR
HOMELESSNESS AND HOUSING?
Homeless services and shelters?
Yes. Treasury’s Final Rule allows expenditures for homelessness emergency programs or services for
homeless individuals, including temporary residences for people experiencing homelessness.
Affordable housing programs?
Yes. The Final Rule allows expenditures for programs or services to support long-term housing security,
including development of affordable housing and permanent supportive housing.
Housing vouchers, relocation assistance, or converting vacant and abandoned properties into affordable
housing?
Yes. However, the Final Rule only enumerates these activities for households and communities
disproportionately impacted. These would need to meet low-income requirements outlined in the rule.
Matching federal housing-related grants?
Generally, yes. However, the rules vary by each federal program. Check with the grant administrator to
determine whether ARPA money can count as the local match.
Other housing programs?
Most likely. Most Kentucky cities can consider their entire ARPA allocation as revenue loss, meaning they
can use the funds for any service traditionally provided by a government.
For more information, contact KLC Research & Federal Relations Manager Joseph Coleman at jcoleman@
klc.org or 800-876-4552.
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GRANTS
There are also many grants available that support homelessness and housing projects.
KLC now offers its members access to the GrantStation grant platform. Learn more about the
GrantStation KLC member service.
KLC also posts between 70-90 grants on its own website at any given time. Go here to view grants.
THE IMPORTANCE OF IDENTIFICATION
Social services professionals emphasize the importance of personal identification. Once a person
experiencing homelessness is fed and sheltered, one of the most important things they need is
identification in order to receive employment, assistance, and to function in society. Do you know
how to help a person get an ID? Ask local service providers how to help people with this important
step.
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GUIDE TO EXAMINE HOMELESSNESS AND
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ATTRACTING AFFORDABLE HOUSING
DEVELOPERS TO YOUR CITY
There are various types of funding for affordable housing projects, including federal and state historic tax
credits, low-income housing tax credits, Community Development Block Grants, KHC funding, National
Stabilization program, TCAP/Exchange, Federal Home Loan Bank AHP Program, and Affordable Housing
Trusts/Funds (such as Lexington and Louisville).
Developers that specialize in affordable housing and rehabilitation are looking for certain environments
and requirements when deciding to come into a community and develop projects.
The Kentucky Housing Corporation has an interactive webpage to help city leaders identify its “partnering
developers,” single-family housing developers currently working in their or other areas. Go here to view
your county. Single-Family Development - Housing Developers (kyhousing.org)
What do developers need most from communities interested in affordable housing?
• Community leaders on the same page
• Commitment to support the project within the community
• Appropriate planning and zoning and infrastructure in place
• Flexibility to solve issues that arise
• Realization that it takes time (maybe up to two years from start to finish)
Kentucky developers are building very attractive projects in Kentucky cities but say there are still “not in
my back yard” (NIMBY) myths about affordable housing units. There’s a misconception that units detract
from the community instead of adding value to neighborhoods.
Some recent projects in Kentucky cities are even developed as mixed-use downtown ventures. Developers
are working with local organizations and cities to create mixed-use projects that include retail, restaurants,
condos/lofts, and affordable housing in the downtown area. This is happening in small as well as larger
cities.
Adrienne Bush, Executive Director of Homeless and Housing Coalition of Kentucky, is happy to work with
city officials and gives community presentations, providing real data and evidence about the myth that
providing services will attract people experiencing homelessness. (See contacts information.)
During the November 2021 Homelessness Summit: Housing and Hope, KLC worked with two for-profit
developers, AU Associates and Wabuck Development Company, Inc., doing incredible work in Kentucky
communities.
View their presentations: 4 Affordable Housing Solutions
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AFFORDABLE HOUSING
Located in the heart of the historic downtown district of Springfield, the Robertson Building is a
beautiful rehab project done by AU Associates with assistance from the City of Springfield, the
Kentucky Housing Corp., and several other partners. Built in 1896, the Robertson Building was
originally used as a dry goods supply store. Now, the Robertson Building has been given new
life as the Robertson Apartments and commercial space. The iconic storefront of the building has
been modernized and carefully restored to its former beauty to once again be used for commercial
purposes, while the rest of the building has been artfully transformed and includes luxury apartments.
(Image from City of Springfield, Washington County, Kentucky (springfieldky.org))
Other Resources
List of Kentucky Housing Authorities
Helping Homeless Veterans
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STEPS TO GET STARTED IN YOUR CITY
What’s Next?
Cities that are serious about taking action for people experiencing homelessness and/or learning more
about overall affordable housing solutions can consider the following:
Step 1 – Admit that the Problem Exists and Impacts Real People
Know that the solution will take collaboration, resolve, and commitment.
Step 2 – Data/Assessment
Gather the facts, current services, gaps, and resources.
Staff: Conduct a city assessment/survey with your city’s department heads and elected leadership. What
does this issue look like in your city – encampments, people living on streets/cars?
What are the interactions city staff have with individuals who are homeless and those seeking housing or
other social services? What currently happens during those interactions? What do these interactions cost
in terms of staff time, liability, or other quantifiable metrics?
Public Housing Authority (PHA): Make contact with your local housing authority and understand how
they address homelessness and housing. Do they have any admission preference for people experiencing
homelessness?
Conduct an inventory of services, contacts, and key data:
• Nonprofits and Service Providers
• Coordinated Entry Point Contact (ADD/KHC)
• What is your affordable housing stock in terms of housing and rentals?
• How do the rental prices compare to the average wage for renters in your city?
Appoint a person to record these findings (staff person, community member, college student).
KNOW THE FACTS AND GATHER INFORMATION
• How many people and families are homeless in my city?
• Who interacts with them regularly?
• What services exist within my city?
• What are the gaps in terms of resources?
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Step 3 – Convene
The city can serve as a community convener to discuss issues and create a plan.
Designate someone to lead the effort – a city employee or someone else.
Use the KLC Guide to Engaging the Public for tips on conducting an effective town hall or public
meeting. KLC Step-by-Step Guide to Engaging the Public at a Town Hall Meeting
A goal should be to think about persons experiencing homelessness and look at current local and regional
wraparound services. As part of the process, ask homeless individuals what they need.
To assess what exists, invite community stakeholders to participate, including existing service and social
services providers and nonprofits, businesses, schools, jails, county attorneys, judges, soup kitchens, food
pantries, veterans’ organizations, churches and the ministerial association, public libraries, postal workers,
utilities, code enforcement staff, police, fire, EMS and other first responders, hospitals and clinics, and
mental health providers. (See page 13.)
Step 4 – Record
Record and outline what each program offers, access, and contacts. Develop data metrics.
Step 5 – Provide Basic Agreed Upon Information to All Involved
Training: Consider training for staff who interact with those unhoused. Contact local homeless service
providers or KLC can help with education/training. Make sure this training is consistent with the
community’s goals, mission, and vision for a response system.
Local Contacts List: Create a services referral system so every organization knows what the other is doing.
This includes information that is useful to agencies that do not provide services but frequently come into
contact with someone without a home, like law enforcement and hospitals/clinics.
Share basic data gathered.
Step 6 – Take Action
Actively work on affordable housing. Ask your local public housing authority (PHA) to help educate key
stakeholders.
• Landlord Accountability
Adopt a landlord agreement (ordinance?) to encourage fair practices among landlords. Contact
KLC Municipal Law to obtain examples from Kentucky cities.
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Work with housing developers to purpose low-income tax credits, HOME, and AHTF funding. Try
to include one-bedroom units in all developments as data shows the majority of homeless are
single individuals.
Work with your public housing authority (PHA) to:
- Evaluate preferences for people experiencing homelessness (several ways to do this).
- Evaluate eligibility criteria. Are there unnecessary eligibility criteria used beyond what is
required by HUD that is screening out people who need assistance?
- Educate and encourage more landlords to accept housing vouchers.
- Remember, not everything that the city does has to include “money.” Often it can be about
elevating awareness of the problem and asking people to help how they can.
- Consider housing tax credits. KLC’s advocacy team supports this effort and can provide
information.
Keep it Going and Start to Create a Plan
• Participate in the annual K-Count, which is a physical count of all those experiencing literal
homelessness (emergency shelter, those in dedicated transitional housing, and unsheltered
homelessness) on the last Wednesday night of every January. KHC organizes the Kentucky Count
(K-Count) for the BoS CoC. You should designate someone in your local community to lead all
local efforts for the K-Count.
• Consider creating a formal, dedicated local task force to focus on homelessness or take the next
natural steps.
• Involve your legislator. There is also a bipartisan Kentucky Caucus on Affordable Housing. View
members here.
Finally, there are Kentucky cities and cities across the country doing good things. The Kentucky League
of Cities will provide virtual and in-person networking, education opportunities, and additional resources
regarding homelessness in the future.
Watch for more information and go to the Kentucky League of Cities (klc.org) to follow the latest
resources on homelessness and affordable housing.
YOUR POWER TO CONVENE
A city can serve as a convener in discussions on homelessness and housing.
WHAT DO WE TALK ABOUT?
Your Community Profile
How many homeless people are within our city?
Who is in contact with them?
What services are needed?
When will they be provided?
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Where do they stay?
What services are being provided?
Who can provide them?
How do we keep track of the information?i

GUIDE TO EXAMINE HOMELESSNESS AND
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HELPFUL CONTACTS
Coordinated Entry Leads by ADD
Adrienne Bush, Executive Director
Homeless and Housing Coalition of Kentucky
502-223-1834x101
abush@hhck.org
Cassie Carter, Housing Program Manager
Homeless and Housing Coalition of Kentucky (HHCK)
502-223-1834, ext. 106
ccarter@hhck.org
Johan Graham, President
AU Associates, Inc.
859-233-2009x1001
johan@auassociates.com
Jacqueline S. Long, Director of Housing and Grants
Mountain Comprehensive Care Center
859-227-7755
jackie.long@mtcomp.org
Rick McQuady Director, Office of Affordable Housing
Lexington-Fayette Urban County Government
859-280-8044
rmcquady@lexingtonky.gov
Polly Ruddick, Director
Office of Homelessness Prevention and Intervention
Lexington-Fayette Urban County Government
859-258-3105
pruddick@lexingtonky.gov
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Wendy K. Smith, Deputy Executive Director, Housing Programs
Kentucky Housing Corporation
502-564-7630x126
wsmith@kyhousing.org
Kenzie Strubank, Homeless Programs Manager
Kentucky Housing Corporation
502-601-0026
kstrubank@kyhousing.org
Travis Weber, Branch Manager Housing and Community Projects
Department for Local Government
502-573-2382
travis.weber@ky.gov
Samuel Thorner, Managing Director Multifamily Programs
Kentucky Housing Corporation
502-564-7630x427
sthorner@kyhousing.org
Eileen Ward, Kentucky Director of Homeless Veterans
502-545-4193
Eileen.Ward@ky.gov
Garry Watkins, President
Wabuck Development Company, Inc.
270-259-5607
garry.watkins@wabuck.com
Terri Johnson, Member Relations Manager
Kentucky League of Cities
859-977-3784
tjohnson@klc.org
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GUIDE TO EXAMINE HOMELESSNESS AND
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Jeri McCullough, Director of Member & Business Development
Kentucky League of Cities
859-977-3780
jmccullough@klc.org
Cassie Cooper, Member Education Manager
Kentucky League of Cities
859-977-3761
ccooper@klc.org
Tad Long, Community & Economic Development Manager
Kentucky League of Cities
859-977-3739
tlong@klc.org
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PREFERRED TERMINOLOGY,
ACRONYMS, AND GLOSSARY OF TERMS
KLC has compiled a list of homelessness and housing-related commonly used terms and acronyms. Go
here for the Glossary of Terms.
In addition, respectful language is important when referring to fellow Kentuckians experiencing
homelessness or other issues. Advocates for these persons encourage all of us to make a conscious effort
to refer to individuals as people first and not define the person by their current living situation, social or
medical issue, or disability. Being referred to by a term makes individuals experiencing these situations
feel further excluded from society. Making a small effort to use respectful language makes a big difference
and sets a tone for others.
Examples of preferred references include:
• Instead of Homeless - Person experiencing homelessness.
• Instead of Addict - Person experiencing addiction, substance misuse, or person in recovery.
• Instead of Handicapped - Person with a mental or physical disability.
• Instead of Mentally retarded - Person with a cognitive/developmental disability.
*The KHC Community Resource Guide is a list of agencies across the Commonwealth of Kentucky as a
resource for possible assistance and not a guarantee that assistance will be provided. Individuals must
contact the agency directly to receive information and/or program qualifications. Please note: KHC does
not fund all of the entities listed throughout the guide, and it is not guaranteed the listed agency will have
available funds.
Sources: The Kentucky Housing Corporation; LFUCG Office of Homeless Prevention and Intervention;
Jacqueline Long, Mountain Comprehensive Care Center, HUD, Erlanger-Elsmere School District;
Homelessness Research Institute; Invisiblepeople.com; National Coalition for the Homeless; U.S. Census
Bureau; U.S. Department of Education Office of Planning, Evaluation and Policy Development; Kentucky
Department of Education; Center for Children in Poverty; Association for Child and Adolescent Mental
Health; Gilroy Institute for Children, Poverty and Homelessness; and Homeless & Housing Coalition of
Kentucky.
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2021-2022 DOCUMENT AND
AUDIOVISUAL LINKS
Video: You Never Know Who’s Homeless
Video: A Profile – Homeless Children and Youth
Video: On the Edge of Hope – Shelbyville’s Veteran’s Village
KLC November 9, 2021, Homeless Summit: Housing and Hope
• Speaker Contacts
• Presentation Resources:
- State of Homelessness and Housing in Kentucky
- Kentucky Housing Corporation and Housing & Homelessness Programs
- Local Strategies
- Local Affordable Housing Solutions and Attracting Developers
- Panhandling Regulations
- Next Steps for Your City
Legislative Efforts
• Housing, Building, and Construction
• Landlord and Tenant
Digital Resources
• Coordinated Entry Leads by ADD
• Resources/Services/Housing Contacts by County/Region
• Start the Conversation in Your City - “KLC Step-by-Step Guide to Engaging the Public at a Town
Hall Meeting”
• Blog – It Starts with Home
• Blog – Children and Youth
• Blog – Senior Citizens
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• Blog – KLC Virtual Homelessness Summit: Housing & Hope Summary (November 2021)
• Blog – K-Count (February 2022)
• KLC Understanding Homelessness (February 2021)
• KLC Understanding Homelessness Glossary of Terms (February 2021)
• National League of Cities: Unlocking Homelessness Report (February 2021)
• National League of Cities: The Eviction Prevention Cohort Report (February 2021)
• Local Tools to Address Housing Affordability: A State-by-State Analysis - National League of Cities
(nlc.org) (March 2022)
KLC Partner Organizations: (Call KLC if you would like specific contact names)
• Foundation for Appalachian Kentucky League of Cities
• Homeless & Housing Coalition of Kentucky
• Kentucky Department for Local Government Housing
• Kentucky Housing Corporation
• Lexington-Fayette Urban County Government Office of Homelessness Prevention and Intervention
• Mountain Comprehensive Care Center
• Affordable Housing Developers – Contact KLC for specific contact names.
GOT A SPECIFIC QUESTION?
KLC has created a network of partners around the issue of homelessness and housing.
While we are not the experts, we know who to contact. Contact KLC Member Relations for
assistance at 800.876.4552.
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100 East Vine Street, Suite 800, Lexington, Kentucky 40507
Tel. 859.977.3700 or 800.876.4552
Fax 859.977.3703
klc.org