During President Donald J. Trump’s first term, Veterans Affairs leaders celebrated a remarkable success: a government initiative had nearly halved veteran homelessness since 2010.
This initiative, known as HUD-VASH, combines housing vouchers with case management, requiring veterans to contribute roughly one-third of their income toward rent. The program offers rental assistance without preconditions, alongside optional drug treatment and mental health services—an approach called Housing First.
However, the Trump administration is now moving away from this approach. In a recent executive order, the president directed federal agencies to cease funding Housing First programs, criticizing them for "deprioritizing accountability" and failing to encourage treatment, recovery, and self-reliance.
Although veterans were not explicitly mentioned in the order, they represent a significant portion of the homeless population—about one in every eleven homeless individuals is a veteran. Congress has prioritized addressing veteran homelessness, allocating $3.2 billion for this cause in the current fiscal year.
Many professionals working with homeless veterans expressed surprise at the policy shift, which promotes moving homeless individuals into long-term institutional care and tying housing assistance to behavioral compliance.
If strictly enforced, experts warn, the policy could result in veterans losing housing or avoiding treatment entirely. Aaron Estabrook, an Army veteran and housing authority director in Manhattan, Kansas, cautioned that this could lead to increased homelessness, mental health crises, and incarceration instead of stable housing.
Estabrook, a former Veterans Affairs case manager, recounted meeting many veterans couch-surfing or living in their vehicles. He noted that securing permanent housing often triggered a profound behavioral change in these individuals.
"Once veterans have a safe place to call home, they tend to embrace the responsibility and discipline ingrained during their service," he explained. "They begin to care for themselves and integrate positively into their communities."
The administration’s hardline stance on homelessness—referred to as "vagrancy" in the executive order—reflects a growing conservative movement advocating for clearing encampments and mandatory treatment, supported by influential organizations such as the Cicero Institute.
Critics argue that Housing First, originally adopted under George W. Bush and expanded during the Obama and Biden administrations, removes incentives for sobriety and mental health treatment by providing housing upfront. They propose redirecting funds from permanent housing toward supervised treatment facilities.
However, cutting housing benefits for veterans poses political challenges. Senate Veterans Affairs Committee leaders have urged clarification on whether HUD-VASH will persist unchanged, emphasizing that significant modifications would require congressional approval.
A White House spokesperson declined to comment on HUD-VASH’s status but affirmed the president’s commitment to veterans, citing initiatives like the National Center for Warrior Independence in Los Angeles and legislation protecting veterans from foreclosure, which will remain unaffected by the executive order.
"The administration continues efforts to streamline Veterans Affairs and improve access to earned benefits," the spokesperson stated.
Officials from the Department of Housing and Urban Development and the Department of Veterans Affairs indicated they do not anticipate changes to HUD-VASH resulting from the new policy.
Kasey Lovett of HUD emphasized that HUD-VASH differs from traditional Housing First programs by requiring participants to engage with case managers and access comprehensive VA services.
"HUD-VASH’s success stems from its emphasis on robust behavioral health support," Lovett explained.
Similarly, a VA spokesperson noted that, despite past characterizations, HUD-VASH is not a Housing First program that neglects treatment and recovery and therefore will comply with the president’s executive order without alteration.
This stance contrasts with the VA’s own materials, which state that the Housing First model has underpinned HUD-VASH since 2012. Recent statements celebrating reductions in veteran homelessness have cited the evidence-based Housing First approach as foundational.
Veterans who have experienced homelessness expressed concern about the potential reinstatement of sobriety as a prerequisite for housing.
Jade Lane, a 41-year-old Army Ranger wounded in a 2004 friendly-fire incident, shared that requiring sobriety would be a significant barrier. Lane struggled with addiction and homelessness for years, finding stability only after accessing housing without conditions.
Navy veteran Ramon Guerrero, diagnosed with PTSD, used HUD-VASH vouchers to secure an apartment in Topeka, Kansas. Though he left after a landlord dispute, he reported a marked reduction in methamphetamine use thanks to the stability housing provided.
"When you’re homeless, it’s easy to feel defeated and question the purpose of sobriety," Guerrero reflected.
Even within veteran communities, Housing First has detractors who argue it enables residents to retreat into addiction or illness behind locked doors.
Philadelphia real estate developer Dana Spain, who acquired a former veterans shelter in 2015, observed many veterans placed into permanent housing without sufficient support, often before they were ready.
"Homeless individuals often behave as if in survival mode," Spain explained. "Some have resorted to dangerous or unsanitary actions due to their prolonged street experiences."
Spain helped design Veterans Village, a 47-unit affordable housing complex based on a "treatment first" model. Residents must complete treatment programs and abstain from drug use. The approach has garnered attention primarily from conservative media outlets.
"Simply placing people into housing without addressing underlying issues won’t solve the problem," she said, supporting the administration’s recent executive order and criticizing Housing First as ineffective for chronic street homelessness.
The concept of conditioning housing on treatment is not new. Prior to the 2000s, homeless individuals typically progressed through shelters and transitional housing before qualifying for permanent residences, a model known as "stepwise" or "treatment first."
How federal agencies will implement the executive order remains uncertain, given many providers have long followed Housing First principles.
Cicero Institute’s Kurtz does not anticipate evictions from existing Housing First units but warns that landlords or providers tolerating drug use could face federal funding losses or legal consequences.
"Allowing drug use on federally funded properties violates the law and could lead to prosecution," Kurtz stated.
Critics cite the growth of homeless encampments despite billions spent on housing as evidence Housing First has failed to improve health or reduce substance abuse, though it has helped maintain housing stability.
However, they tend to overlook veteran-specific programs, which are well-funded and have demonstrated effectiveness. HUD-VASH currently supports about 90,000 veterans and has permanently housed roughly 170,000 since its 2012 Housing First designation.
Between 2009 and 2023, veteran homelessness declined by 51.5 percent, a success hailed by key figures involved in HUD-VASH’s creation as one of the most effective homelessness programs ever.
Conservative analysts advocating to move away from Housing First acknowledge HUD-VASH’s role in reducing veteran homelessness but suggest demographic shifts, such as an aging veteran population, also contribute.
They also note that the VA’s substantial investment in social services alongside housing is a significant factor in these improvements.
Kurtz added that discussions with federal agencies suggest veterans’ housing programs are not a primary target for change under the new policy.
If HUD-VASH continues with Housing First principles, questions arise about why other homeless populations might not receive similar support, according to Mary Frances Kenion of the National Alliance to End Homelessness.
"There is broad consensus that aiding homeless veterans is a noble cause," Kenion said. "But attitudes toward non-veteran homeless individuals often shift toward questioning personal responsibility for their situation."
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