Cold Weather and the Unhoused in Raleigh
Not many people think of snow when they think of North Carolina. A main draw to living in the state are the mild winters. While residents are able to feel each season during the year, North Carolina provides an alternative for those trying to escape the harsh cold of the Northeast. Climate change experts suggest that North Carolina will continue to shift towards shorter and milder winters. In fact, Raleigh’s annual snow fall has declined by 36% since the 1960s. Despite this predicted change, in its current climate condition, North Carolina still faces extremely cold temperatures. Basing the state’s snow and cold temperature response budget on potential future conditions does not address the current weather trends.
When it does snow in North Carolina, many who live in the state joke that no one is prepared for it. While the North Carolina Department of Transportation (“NCDOT”) allocates “$60 million for storm preparation and snow and ice removal” annually, it spent “about $58.4 million statewide” on two storms in January of 2025 alone. Thus, it is a fair assumption to say snowfall is not North Carolina’s biggest budgetary concern. Snow is not the only weather condition NCDOT must prepare for. Climate change is predicted to bring more extreme weather events, such as hurricanes and other precipitation conditions. The rising unhoused population in North Carolina is particular vulnerable to winter storms and climate change. Extreme weather is traditionally an example in which unhoused individuals would need access to emergency shelter locations. These emergency options are largely funded by local governments and municipalities, operating on grants from the federal government. The newly elected administration has signaled repeatedly during its few weeks in office its willingness to cut federal programs designed to protect the unhoused.
When looking specifically at Raleigh, if the current administration continues to cut, downsize, and eliminate departments within the government that provide welfare, states like North Carolina will see a decrease in available funding for these services directed towards the unhoused. Given the fact that state law does not mandate municipalities to provide any state-funded refuge for unhoused individuals, and Sec. 9-2025 of Raleigh’s city ordinance prevents sleeping on parks, streets, or sidewalks, individuals are left with very limited legal recourse options to address the climate dangers facing the unhoused. An unhoused person’s only available legal right for protection may come from Raleigh’s city ordinance TC-4-24, which allows for emergency shelter during extreme weather.
Winter storms and freezing temperatures are infrequent occurrences in North Carolina. The last snow reported in the state was nearly three years ago. A winter storm in early January 2025 reset Raleigh’s 1,067-day snow drought back to zero. For unhoused individuals located in city, the rarity of snow poses unique challenges for preparedness. Raleigh does not have a city-wide cold-weather response plan, so many non-profit groups are heavily relied upon. In nearby Orange County, for example, the local government works with IFC to provide “shelter for residents living unhoused during the winter.” Additionally, if the temperature drops to a certain degree, additional “White Flag” shelters are opened. Many local government and municipality services, such as shelters, are funded through the state. The North Carolina Emergency Solutions Grant Office often provides funds to local governments and municipalities to maintain shelters and aid the unhoused community. The U.S. Department of Housing and Urban Development (“HUD”) makes a grant to the State, which is then dispersed to groups contributing to street outreach, emergency shelter, prevention, and rapid re-housing. As it stands, it is unclear how many grants HUD will be able to make under the currently administration. Given the uncertainty of many federal welfare programs, the unhoused community desperately need access to other resources and protection.
For someone unhoused in Raleigh, their only right might come something buried in the Unified Development Ordinance. TC-4-24 allows for temporary and accessory emergency shelters. The ordinance permits the creation of these shelters during the duration of specific weather and public health concerns. It also outlines what these shelters must have. Interestingly, the ordinance does not mandate their creation but simply allows for these sorts of shelters in “indoor facilities”. The ambiguous language of the ordinance provides unhoused individuals with some protective measures during the cold. The ordinance does not indicate who or what organization is allowed to create emergency shelters. If read broadly, TC-4-24 allows unhoused people to erect semipermanent structures during the duration of extreme weather without city approval. This bestows unhoused individuals with a right to protection.
Madeleine Calick
Class of 2026, Staff Member