Feature by Tom Muckerheide
These introductory months of 2025 have been a chaotic time for many within the state of Indiana. The newly assembled State Senate has put forward a slew of bills, numbering in the 500s at the time of writing. But while the committees of Monroe County and the City of Bloomington escape the frigid air to discuss the taxes and infrastructure, voices from the least acknowledged of our community fall by the wayside. For the unhoused and unprotected, this cold weather has made it harder to stay safe and seek refuge in the rapidly filling shelters. Tammy, a 51 year old woman without a permanent shelter, relies on her dog Sophie to get through the cold nights.
“The whole time I get up, I walk around so I can keep some body heat. Plus I have Sophie and me. We sleep together. So we stay close together for body heat, like we put off body heat together, and then I put blankets under us and cardboard under us, and then blankets over us, of course, and just try to stand in the blankets and on top of cardboard. In a dry area–try to find somewhere with less wind, like on a building that’s either abandoned or closed for the night, like on the side of it, maybe where it’s not as high, because sometimes that wind is terrifying,” Tammy said.
WFHB News spoke with Tammy at the Shalom Homeless Center of Bloomington following the string of snowstorms and low temperatures that hit Bloomington in January of this year. With freezing temperatures dangerously low, Tammy and others like her are reeling from the effects. Leaders of nonprofit shelters say that city and state policies have the power to make things even harder, or even easier, depending on the voices they listen to.
Rev. Forrest Gilmore, Executive Director of Beacon Inc.
Among the voices advocating for solutions to these problems is Reverend Forrest Gilmore, the executive director at Beacon inc. He’s observed the influx of admission into shelters around Bloomington as a result of the cold.
“Our facilities are packed to the gills, so to speak. Much more people seeking shelter than they normally would in warmer times, and both at the day center and the overnight shelter, we’re seeing so much more need and demand for that,” said Gilmore.
Beacon is a 501(c)3 organization committed to offering on demand and lasting help for those suffering from homelessness. Their primary base of operations, the Shalom Homeless Center, operates Monday through Friday from 8:00 AM to 4:00 PM. Beyond Shalom, Beacon offers a number of services such as the Friend’s Place Overnight Shelter and Phil’s Kitchen. Despite the strain, these services have been of tremendous help to the guests at the Shalom Center in light of recent weather. WFHB spoke with a 66 year old woman other guests affectionately called “Momma.” She said she was grateful for the services of Beacon.
“You just bundle up. That’s all you can do. You want to live? I mean, I’ve got pneumonia now, but I’m living. I mean, I’m 66 years, I’ll be 67 this month, and I’m still living. So if I can do it, anybody can do it. I don’t live in a tent, though. Thank God. I stay at Friends [Friend’s Place Overnight Shelter]. And if it wasn’t for this place and for Friends, or I should say, Beacon, I wouldn’t be around,” said Momma.
While Beacon has seen the increase in demand driven by snow and dangerous temperatures, other shelters have identified different ways the cold can exacerbate homelessness in our community. Emily Pike is the executive director of New Hope for Families, a partner of Beacon and other homeless initiatives in Bloomington focused on housing for families with children. She said that it was more common that summers present an increase in unhoused families.
Emily Pike, Executive Director of New Hope for Families
“The weather doesn’t have as strong an impact on family homelessness as it does on [other] folks because at New Hope, we are committed to making sure that no one sleeps outside as a family. So there are no families that we are aware of sleeping outside tonight […] Really, all year round, we see a lot of calls and the summer tends to be the busiest time for us,” Pike said.
Pike highlights the effects of winter in worsening the situation for low income tenants. Expensive utility bills and Bloomington’s lease cycle are among the primary causes of subsequent summer evictions and housing displacement.
“A leading cause of, well, one leading cause of people unable to afford to continue in their current living situation is high utility costs in the winter. And so if you couldn’t afford your heating bill in February, probably by May is when you are in a situation where it’s untenable and you’re going to need to find something else” Pike said.
Cinda O’Connor is the longest-running volunteer at the Shalom Center. While she has helped the shelter in a variety of ways, her favorite has been right at the hospitality desk. She had this to say about her experience on the ground during these freezing months.
“We have big bins–socks, gloves, hats. The glove box has been empty–even with all of our wonderful donations that come in–the gloves, scarves, hats have just been flying out here because everybody needs that, but we’ve had a good supply of hand warmers and the various things that they need. But it’s amazing how quickly they come in and out,” O’Connor said.
O’Connor feels that the cold is a trying time for the shelter and the guests. While she is excited about the work Beacon is doing, she told us that this will continue to be an important time of the year for shelters for as long as there are people in need.
“I have noticed that, you know, those really cold days, that it’s just a mood that you see there on those days. People, ordinarily, people are so grateful and very nice about coming in and accepting our services, but the mood gets a little testier during those cold, cold days, because there’s just not much we can do to help them on their end.” said O’Connor.
The cold streak is not the only thing impacting the people of Bloomington without housing. Executive Director Gilmore has spoke on the broader upward trend of homelessness.
“We’ve seen something that we haven’t seen in a long time or ever. I’ve been with Beacon for 15 years now, and we’re seeing a level of street homelessness that we haven’t ever seen. This is happening in cities across the country and even in more rural areas as well, and it’s kind of baffling. I don’t know if anyone fully understands why, but we’re seeing a significant uptick in street homelessness, and so this is presenting a huge challenge in terms of taxing already highly taxed services. Services that were already at their edge are suddenly seeing demand that’s even more. We want homelessness to be going down, not up, and we’re not seeing that right now. So I would say we’re not prepared. As we do and many others are doing, we’re doing our absolute best to deal with this change and need, but we’re already at the edge, so trying to continue to further push that edge is a great challenge.” Gilmore said.
The question asked by advocates has been how this increase has come about. While nothing concrete has passed the Indiana state senate, both the statehouse and the city of Bloomington’s initiatives on homelessness will have a crucial impact on the community.
The action items outlined in mayor Kerry Thomson’s 2024 housing plan include implementing recommendations from the 2020 Bloomington housing study, increasing transparency and public input in the creation of housing projects, and forging stronger partnerships with the county and state.
Both Forrest Gilmore and Emily Pike, among other issue leaders in the community, are a part of a team that outlined a housing action plan for 2024. This plan addresses what they see as the primary causes of homelessness and identifies immediate and long-term priorities for housing action. Their stated goal is to reduce unsheltered homelessness by 50% by 2027 and 70% by 2030.
Despite Bloomington’s efforts at alleviating housing issues for the south central Indiana community, national and state legislation has been met with controversy by advocates for more available and affordable housing.
Reverend Gilmore said he and his team at Beacon are keeping a close eye on government policy on the national level. He’s been concerned about statewide bans on homelessness and actions necessitated by surviving without a home, such as street camping.
“There also is some talk about banning housing first programs and moving away from housing in general as a response to homelessness, and those are deeply concerning potential shifts in law. And so we’re watching that closely. And Kentucky, just recently, did pass both of those things in their crime bill,” Gilmore said.
Indiana legislators have also faced criticism over their homelessness initiatives, often charged with combating and eliminating the problem rather than helping it. The IndyStar reported that Democrats took firm opposition to House Bill 1662, which would have criminalized camping on public property had it not died due to controversy.
Senate Bill 157 is among the top pieces of legislation that concerns advocates. The bill, which on February 4th was referred to the House of Representatives, allows property owners greater power in managing and evicting squatters, which the bill defines as quote “an individual who occupies the property of another and who does not have and has never had: (1) a rental agreement; (2) permission of the owner; or (3) another legal interest in the property.” Critics have warned that this bill will worsen housing instability for those with low income and informal agreements with their landlord.
According to Reverend Gilmore, squatting as it pertains to seeking shelter in abandoned buildings is not the most common experience for people without permanent housing. More common is the occupation of woods or public property in Bloomington. Director Emily Pike was critical of the potential for this bill to put pressure on those in tenuous relationships with their landlord.
“Anytime someone is not protected by a lease, they are more vulnerable to homelessness. And so we see, already, a relatively large percentage of folks, I wouldn’t be able to ballpark it, but folks who don’t come from a formal lease, right? So they are staying with someone else and paying half the rent, but they’re not on the lease, or the other person owns the living situation, the trailer, or the house, or whatever, and that is a factor in episodes of homelessness already, and so I would imagine that making that easier… I can’t imagine that it would be great news,” said Pike.
Pike pointed to other ways government operations have created complex issues surrounding low income families and their ability to do what’s best for their child.
“Something that not everyone knows is that it is illegal to be homeless with your children. It’s considered child abuse or child neglect, right? Which makes sense, right? We don’t want children sleeping outdoors. On the other hand, the unintended consequence of that can be that families don’t ask for help when they need it, because they’re afraid that their children will be removed from their care,” Pike said.
Around a quarter of all people without housing on any given night are children. In her view, children are an underrepresented portion of those affected by homelessness, with governing bodies focusing on what we see on the streets rather than the reality for hundreds of thousands of people.
“And a huge percentage of people, something like 40% are adults not attached to families, but who are relatively stable and can be quickly helped back into housing. And then, there’s that small segment of folks who have sort of what we think of as the trifecta, which is a mental health problem and an addiction plus a physical health problem, and that’s what we call chronic homelessness. So they’ve been homeless for a long time. And so I think oftentimes when people think about what would be a solution, they are thinking about that person, and the intensive support that that person is likely to need. Most people who experience homelessness are not that person. Most people need some help to pay a deposit on a new place, and they need some help to find a place that they can afford in an ongoing way, and so I think that is always going to be the struggle when we talk about our elected officials,” Pike said.
Director Pike says that the cost of housing is a primary driver of homelessness in both the community and the country at large. Progress on that, she says, will be what allows us to reach a solution.
“A lot of times we think that homelessness is a problem that’s about mental health, or it’s a problem that’s about substance use, or it’s a problem about the job market, and certainly, all of those things are factors. But at its root, homelessness is a housing problem. When we look at places in the United States where we have a tremendous homelessness problem, we also have a tremendous housing affordability crisis, and so anytime that we are making it harder for people to be housed, we will be increasing the likelihood of a homeless problem,” Pike said.
One of the guests who agreed to speak with us at the Shalom Center, Tammy, experienced firsthand the difficulties of getting housing. She has no record of drug abuse or other medical problems, and she told us how she picks up litter she sees in public spaces around town. Despite this, she has been unable to hold an apartment.
“I’ve never been evicted from an apartment. I can’t get one. I’ve seen people come here and get three or four apartments while I’ve not had one […] Don’t make sense though, why would I not qualify? A 51 year old woman who’s been homeless for 13 years hasn’t had a place that’s not been evicted,” Tammy said.
The City of Bloomington reports that studies have found rental vacancy rates to be at around 3%, locking people like Tammy out of the opportunity to find permanent housing. Beyond quantity, the affordability of housing has also plagued city and county policy-makers. According to the United States Census Bureau’s American Community Survey, as of 2022, 51.9% of renters in Monroe County spend more than a third of their household income on the cost of housing, the 7th highest rate of cost burdened citizens in the nation.
Reverend Gilmore shares Pike’s commitment to tackling housing affordability as the root cause of homelessness for many.
“Homelessness is caused by housing challenges. So we know that if you look at the amount of substance use in a community, if substance use causes homelessness, we should see in communities with more substance use more severe substance addiction and things like that. We should see higher levels of homelessness, but we don’t actually see that. That doesn’t occur in our country, where we see the same thing with mental illness. If there was more mental illness and mental illness caused homelessness, we should be able to look in communities with higher levels of mental illness and go ‘there should be more homelessness here,’ and we don’t. We don’t see that, but we do see something across the country that’s really challenging. When communities have a low vacancy rate or a high median rent, we see really high homelessness in those areas. So that’s the underlying condition. It’s just that with homelessness, the housing market is terrible. Really, really difficult. And particularly difficult for people who are living in extreme poverty,” Gilmore said.
It is easy to see the esoteric language of our legislative bodies and the uncontrollable forces of winter as things which we must endure. But for the most vulnerable people in our community, enduring can be a matter of life or death. The Shalom Center and New Hope for Families are committed to providing effective solutions to housing problems beyond providing shelter. They provide meals, showers, laundry, mail processing, and other services designed to remove as many barriers to getting back into housing as possible. They also work closely with Indiana Legal Services and the HealthNet Bloomington Center to assist people in managing rental conflicts and costly bills.
“Really good homeless services, which are so important to our community, are far more sophisticated, in that they’re dealing with really professionalized approaches to helping people move out of homelessness and into homes, and that’s exceedingly important in our community. We need to be not just providing a meal or a bed but really working to get people into a stable, long term home,” Gilmore said.
Beacon Inc plans on constructing a new, 45,000 square foot facility that will combine permanent housing, temporary shelter, and food kitchen all into one.
“Some of the things I’m most excited about is that we’ll be bringing multiple partners together to co-locate their services in this building where we’ll be working together. Centerstone, Health Net, even the Bloomington Police Department and their downtown resource officers program and social workers program will be working out of the facility. All in common cause to help solve this problem and support people,” Gilmore said.
New Hope for Families is committed to making sure no families sleep outside. They have recently introduced a program that continues assistance to families after they have secured stable housing, following up on keeping their situations manageable and ensuring they don’t fall back into being unhoused. Ultimately, despite our current climate, Emily Pike has faith in the Bloomington community to help uplift our children and vulnerable families.
“The reason our community has New Hope is because our community has the values that made New Hope happen, right? New Hope is not a national brand. It rose out of five dedicated community leaders, none of whom had any expertise in homelessness, all of whom saw that there was a problem and said we would like to help. And that has been, and continues to be what makes New Hope possible,” Pike said.
Tammy and Momma are not holding out hope that the world will be easier for them, but as they struggle to help themselves and their friends under the burden of homelessness, they too are determined to improve their lives.
“I think things will be better as long as I stay positive and I push more forward, I don’t know if they’re gonna be better as far as the things provided. I hope so,” said Tammy.
“I’m still gonna live. It may not be easier, but I’ll still be living,” said Momma.
More about these nonprofits’ missions as well as how to volunteer and donate can be found at beaconinc.org, and NewHope4Families.org. You can learn more about other homeless shelters in Bloomington by visiting the homeless resources page at Bloomington.in.gov/homeless-resources.
https://www.indystar.com/story/news/politics/2025/02/20/indiana-homeless-criminal-misdemeanor-bill-house-republican-cicero-institute/79207490007/
https://iga.in.gov/legislative/2025/bills/senate/157/details
https://iga.in.gov/legislative/2025/bills
https://www.newhope4families.org/
https://kerryforbloomington.com/platform
https://bloomington.in.gov/housing/affordable
https://headinghomeindiana.org/wp-content/uploads/2024/08/Housing-Action-Plan-Bloomington-Monroe-Co-August-2024.pdf
https://bloomington.in.gov/homeless-resources
https://overflowdata.com/demographic-data/national-data/county-level-analysis/housing-cost-county-22/
https://www.journalgazette.net/opinion/editorials/statehouse-squatter-bill-could-exacerbate-housing-instability-homelessness/article_d0d5c2b6-d81b-11ef-a22f-0f02235f10fa.html