A group of churches in Louisa have been seeking a change to the county’s Land Development Regulations to allow them to offer overnight shelter for those without a home.
In August 2025, the Planning Commission voted 6-0 to recommend a change that would allow churches and nonprofit groups to operate a “humanitarian shelter” if they obtain a conditional use permit from the Board of Supervisors. The appointed body’s recommendation came despite opposition from a dozen speakers who want the shelters, but said it is a violation of the First Amendment to require churches to go through the review process.
The Board of Supervisors took up the amendment on July 6 and, while introducing it, Chair Duane Adams of the Mineral District said he had two concerns. The first was about potential governmental overreach.
“What I think as a Christian is the church’s mandate is to take care of the poor, take care of people who are needy, take care of the least among us,” Adams said.
The second concern was about the rights of those who live near churches that open their doors to the homeless.
“How do we make sure that the neighborhood, the community that a humanitarian shelter would be in, has guardrails?” Adams asked. “How do we know that we don’t have people who shouldn’t be with young children in one of those shelters?”
Deputy County Administrator Chris Coon said those questions would be answered as each shelter makes its way through the approval process. The draft ordinance would require many documents such as a “community impact and service burden” statement.
“Whatever [the] identification, verification methods, or screening practices, they use that if they establish the documents and get approved for the CUP,” Coon said.
The Louisa Homeless Coalition has been seeking to emulate Charlottesville’s PACEM, which helps facilitate overnight stays in the winter. Lin Kogle suggested that there could be one permit for multiple churches that agree to provide the service.
“We have over 110 churches in Louisa County,” Kogle said. “Many of them are willing to do this once you all approve it.”
The permit process requires public hearings during which neighbors can weigh in. A consensus on the Board wanted to keep the permit requirement in or have some other way of holding the churches accountable.
“I think the concern of the community and some of the people on this Board, me being one of them, is that we are going to bus the problems here from Richmond and Charlottesville,” said Supervisor Toni Williams, Jr. of the Jackson District.
Other members of the coalition said it usually goes the other way, with people from Louisa heading to urban areas with more services.
“I’ve lived here 30 years and taken homeless people into my home and worked with the homeless for 30 years,” said Sue Frankel-Streit. “I’ve never had anyone ask to come here. It’s always trying to go where services are.”
After a lengthy public hearing, supervisors were not ready to vote and directed staff to examine whether or not there is a way to move forward without requiring a permit.
“Let’s take the next 30 days, really focus on it and put it to bed because winter’s coming,” Adams said.
The item will come back at the August 3 Board of Supervisors meeting.
