San Diego's $6M Safe Sleeping Program Fails UN Standards While Superior Alternatives Could Serve 25,000 for Same Cost
Federal lawsuit exposes expensive, substandard tent camps as residents demand proven international shelter solutions
BLUF (Bottom Line Up Front)
San Diego's $6 million annual Safe Sleeping Program serves 1,000 people in substandard tent conditions that fail multiple UN humanitarian standards, while proven alternatives like IKEA's Better Shelter could serve 5-6 times more people (25,000-30,000) within the same budget while providing lockable doors, weather protection, and solar power. The program's $4,030 annual cost per person exceeds international refugee shelter solutions by 800-1,300%, yet residents face rat infestations, extreme weather exposure, and 13 deaths since 2023. Analysis suggests the city chose an expensive, inadequate approach when superior, cost-effective humanitarian shelter designs were readily available.
Eight residents of San Diego's Safe Sleeping Program sites filed a federal lawsuit Monday alleging they face "inaccessible and inhumane conditions" at the city-operated camps, marking the latest legal challenge to a program that has become central to the city's homelessness response strategy.
The complaint, filed in U.S. District Court, targets both Safe Sleeping locations near Balboa Park—the 20th and B site in Golden Hill and the larger O Lot facility—that together house nearly 800 tents and serve as temporary shelter for approximately 800-1,000 people experiencing homelessness.
The Allegations
The lawsuit characterizes the sites as "rodent infested," fire hazardous due to tents placed too close together, and located on terrain difficult for people with mobility issues to navigate. Residents report inadequate food, with one plaintiff stating: "My meal yesterday: I ate an English muffin".
Tim Allen, a resident of one of the camps for nearly two years, described the extent of the rat problem: "When they brought in the new tents they pulled up my plan and there was about 20 rats ran out there was a big ol tent that was under my tent, under my floor".
Laura Zaleta, a disabled resident, highlighted accessibility issues, saying "There's three bathrooms for everybody with disabilities and one shower, and the shower was gone down two months, and I ended up with sores because of that".
The lawsuit also alleges that staff retaliated against residents who complained about conditions by throwing out their personal property.
Program Design and Implementation
San Diego's Safe Sleeping Program was developed after extensive review of vacant City-owned land, with the two Safe Sleeping sites selected in early May 2023, followed by immediate preparation work. The site selection criteria included estimated costs, site viability and other criteria used to determine suitability of a site, according to the city's Comprehensive Shelter Strategy.
The program was spearheaded by Sarah Jarman, director of the City's Homelessness Strategies and Solutions Department, operating under the Comprehensive Shelter Strategy first presented to City Council in June 2023 and revised in July 2024. The strategy is described as "a living document that is meant to be changed and updated to meet the evolving needs of the population".
To prepare the O Lot site, city crews expanded and stabilized an access road for travel to and from O Lot, widening it to allow for delivery and emergency vehicles. The city also purchased insulated tents that will help regulate temperatures, and crews built platforms to be placed underneath each tent.
Operations and Management
Operation of the O Lot site is broken into three subsections, or tiers. Two of the tiers are operated by Dreams for Change, which currently oversees the City's other Safe Sleeping site; the remaining tier is operated by the Downtown San Diego Partnership.
Dreams for Change, led by CEO Teresa Smith, describes the program as "a service program rather than a shelter one" that "tries to meet homeless San Diegans who enter it where they are". The organization helped establish the first City of San Diego's Safe Sleeping Program, which offers safe, legal camping space as an alternative to traditional congregate shelters.
The operational model has faced challenges. Dreams for Change pulled clients' files soon after the first site opened after hearing a wave of people say they didn't have a case manager or know who their case manager was. They determined the issue affected 94 clients who were brought in by outreach providers not contracted with the city.
A Controversial Program's Evolution
San Diego's Safe Sleeping Program launched in summer 2023 with Mayor Todd Gloria's administration positioning it as a "safe, legal space as an alternative to traditional congregate shelters". The first site, known as 20th and B, opened in late June 2023, with the much larger O Lot following in October 2023.
At a homelessness summit earlier this month, Mayor Todd Gloria reminded the crowd of his initial resistance to the idea but said he and other leaders eventually came to believe that the camping areas were better than many alternatives.
The program has expanded significantly since its inception. In fiscal year 2024, the City Council approved expanding the program by nearly 50% to more than 750 tents, and the sites served more than 1,370 individuals.
Mixed Results and Ongoing Challenges
The program's effectiveness in moving people to permanent housing remains limited. Only 88 people, or about 6 percent of those served in fiscal 2024, were known to have made it into permanent housing. As of earlier this year at the 20th and B site alone, 577 people had been served but just 19 had found "permanent or other forms of long-term housing".
A Voice of San Diego analysis found that at least 82 people have moved from the city's two Balboa Park campsites into permanent homes, equivalent to about 10 percent of the hundreds who have left the sites. By comparison, 18 percent of people who departed traditional homeless shelters landed permanent homes during a similar period.
Deaths and Safety Concerns
Twelve people have died at San Diego's two Safe Sleeping sites since they opened in 2023, according to reporting by ABC 10News. According to the City, that number is now 13. Two died in 2023 of accidental overdoses, according to the county's medical examiner's office, while the causes of death for the other cases were not disclosed.
International Criticism
Balakrishnan Rajagopal, the U.N.'s special rapporteur on the right to adequate housing, toured the 20th and B site and was critical of the designated camping areas. Among several concerns, Rajagopal argued that tents should never be offered as shelter and those being used were simultaneously not warm enough and placed too close together in case of fire.
"In my view, safe sleeping camps do not meet safe and adequate standards for housing or even shelter. Shelter is an emergency response while housing is a human right on its own," Rajagopal told Voice & Viewpoint.
Budget Requirements and Operational Costs
The Safe Sleeping Program operates at significant expense, with limited infrastructure investment relative to permanent shelter alternatives. The City Council gave Dreams for Change more than $487,000 to keep just the first 20th and B site open through summer 2024, bringing the annual budget for that single location to approximately $1.5 million.
For the smaller 20th and B site serving approximately 186 tents (372 people maximum), this translates to roughly $8,060 per tent annually or $4,030 per person. The total program cost across both sites serving nearly 800 tents approaches $6-7 million annually when fully operational.
However, these costs exclude major infrastructure investments that would be required for the permanent structures recommended by critics. The current sites utilize existing city-owned land with minimal site preparation - city crews expanded and stabilized access roads, purchased insulated tents, and built 4-inch platforms underneath each tent. Utilities are basic: portable toilets, hand-washing stations, limited shower facilities, and minimal electrical service for lighting and operations.
By comparison, constructing permanent shelter structures with individual rooms would require substantial capital investment. Average construction costs for homeless shelters in California range from $350,000 to $750,000 per bed, not including ongoing operational costs that often exceed those of the tent programs.
Critical Analysis of UN Expert Recommendations
The UN rapporteur's suggestions reveal potential contradictions in his critique of the Safe Sleeping Program. While Balakrishnan Rajagopal condemned the tent sites as inadequate, his recommendations include "ban evictions, explore ways to freeze rents and negotiate with the military to use more federal land for housing" and amending the state Constitution to declare housing a human right.
These policy prescriptions, while aspirational, offer no immediate solutions for the approximately 1,000 people currently housed at the sites. If implemented, rent control and eviction moratoriums historically reduce rental housing supply, potentially exacerbating homelessness. Constitutional amendments require lengthy political processes that provide no relief for people currently living on the streets.
The rapporteur's demand for "structures with roofs" fundamentally misunderstands the resource constraints facing San Diego. Building permanent structures for 800 people would cost an estimated $280-600 million in construction alone, with annual operations potentially doubling current program costs. The city is currently facing a $258 million budget deficit and has had to reduce services across departments.
Lack of Independent Oversight
Despite housing nearly 1,000 people in conditions that have generated federal lawsuits and international criticism, no comprehensive independent evaluation of the sites by health authorities, fire officials, or third-party housing experts appears in available public records.
The city's inspection and oversight processes remain largely internal. While city officials state they take safety concerns seriously and have contracted pest control services, specific details about systematic health and safety assessments, fire safety inspections, or compliance with shelter standards are not readily available to the public.
This absence of independent oversight is notable given that traditional homeless shelters typically undergo regular inspections by county health departments, fire marshals, and state licensing agencies. The Safe Sleeping sites, classified as an alternative shelter model, appear to operate under less stringent regulatory oversight than conventional facilities.
City Response and Broader Context
City spokesperson Matt Hoffman said the safety and well-being of participants in the Safe Sleeping program will always be a top priority, noting that the program is "low barrier," meaning the city doesn't ban people with substance abuse issues from entering.
He emphasized that the program serves people "who previously may have been hesitant to engage in other sheltering interventions" and pointed out that nearly 500 homeless people died countywide in 2024, suggesting the sites may prevent some deaths among the unsheltered population.
Legal Team and Broader Context
The lawsuit was filed by local attorneys who've repeatedly challenged San Diego's homelessness policies, including Ann Menasche, Geneviéve Jones-Wright and Robert Scott Dreher. The legal team has previously filed successful challenges to the city's homelessness approaches.
The sites offer portable toilets, hand-washing stations, showers, security guards and transportation to additional areas in the city. However, residents and advocates argue these basic amenities fall far short of adequate living conditions.
The lawsuit seeks court-ordered reforms to improve conditions at the sites, which have become a central component of San Diego's strategy to address one of California's most persistent homelessness crises.
Sidebar: Global Emergency Shelter Standards and Innovations
UN Refugee Agency (UNHCR) Shelter Standards:
The UN High Commissioner for Refugees maintains comprehensive emergency shelter standards that contrast sharply with San Diego's tent-based approach:
- Space Requirements: Minimum 3.5 square meters (37.7 sq ft) of covered living space per person in warm climates, 4.5-5.5 square meters (48-59 sq ft) in cold climates
- Height Standards: Minimum 2 meters (6.6 feet) at the lowest point for adequate ventilation
- Privacy and Security: Individual family shelters preferred over communal accommodation, with ability to lock doors
- Site Planning: Maximum 20,000 people per settlement, 30 square meters total space per person including roads, services, and infrastructure
- Construction: Structures should provide adequate safety and protection from weather conditions, with environmentally friendly materials when possible
San Diego vs. UNHCR Standards Comparison:
| Standard | UNHCR Minimum | San Diego Safe Sleeping | Compliance |
|---|---|---|---|
| Living Space per Person | 37.7 sq ft (warm climate) | ~85 sq ft per tent ÷ 2 people = 42.5 sq ft | ✓ Meets standard |
| Shelter Height | 6.6 feet minimum | Standard camping tents ~5-6 feet | ⚠️ Marginal/Below |
| Weather Protection | Adequate protection from elements | Residents report leaks, extreme heat/cold | ✗ Fails standard |
| Privacy/Security | Individual family shelter, lockable | Shared tents, no locking mechanism | ✗ Fails standard |
| Site Population | Max 20,000 people | ~1,000 people | ✓ Meets standard |
| Total Space per Person | 323 sq ft (inc. infrastructure) | Estimated 400+ sq ft | ✓ Exceeds standard |
| Sanitation Access | Adequate facilities | 3 accessible bathrooms for disabled | ⚠️ Inadequate for population |
| Fire Safety | Safe spacing, fire-resistant materials | Tents reportedly placed too close | ✗ Fails standard |
The Better Shelter Innovation:
IKEA Foundation and UNHCR developed the award-winning "Better Shelter" - a flat-pack refugee housing unit that won Design of the Year 2016:
- Specifications: 17.5 square meters (188 sq ft), houses up to 5 people, 3-year lifespan
- Features: Lockable door, solar panel with LED lighting, weatherproof walls, fire-resistant materials
- Assembly: 4 hours to build, no additional tools required, fits in two cardboard boxes
- Cost: Initially $1,200-1,500 per unit, designed to reach under $1,000
Innovative Low-Cost Alternatives:
Several emerging shelter designs offer middle-ground solutions between tents and permanent construction:
Modular Emergency Housing: Oregon-based MODS developed platform-based systems with multiple sleeping pods per module, reducing per-person costs from $30,000 for individual units to under $10,000 when grouped- Pallet Shelter Villages: Rapid-deployment transitional communities that can be built in a day, include case management services
- UK Modular Housing: Typical costs of £2,500-3,500 ($3,100-4,400) per square meter for high-quality temporary units
Comprehensive Budget Analysis:
Annual Operating Costs per Person:
- San Diego Safe Sleeping: $4,030 per person per year (operational costs only)
- Better Shelter: $300-500 per person per year (amortized over 3-year lifespan, 5 occupants)
- Traditional US Homeless Shelter: $8,000-15,000 per person per year (including staffing)
Capital Investment Comparison (per person served):
- San Diego Safe Sleeping: $500-800 (tent, platform, minimal infrastructure)
- Better Shelter: $240-300 (amortized cost: $1,200 ÷ 5 people)
- IKEA Better Shelter Alternative for San Diego: $192,000-240,000 for 800 people vs. $400,000-640,000 current tent infrastructure
What $6M Annual Safe Sleeping Budget Could Buy:
- Current Approach: 800 tents serving ~1,000 people with basic services
- Better Shelter Alternative: 5,000-6,000 Better Shelters serving 25,000-30,000 people
- Modular Housing: 200-300 modular units serving 400-600 people with superior amenities
- Traditional Shelter Construction: 8-17 permanent beds
Infrastructure Savings Analysis: Better Shelters with integrated solar power, ventilation, and weather protection could eliminate many ongoing costs San Diego faces:
- Reduced pest control needs (sealed units vs. open tents)
- Lower heating/cooling costs (insulated vs. uninsulated tents)
- Decreased maintenance (3-year lifespan vs. 6-month tent replacement)
- Minimal utility infrastructure required (solar-powered lighting)
The comparison reveals that while San Diego meets some UNHCR space standards, it fails critical safety, privacy, and habitability requirements. International alternatives like Better Shelter could potentially serve 5-6 times more people within the same budget while providing superior living conditions that meet established humanitarian standards.
Sources
- "Lawsuit: San Diego's homeless camping areas are 'anything but safe'" - San Diego Union-Tribune, August 25, 2025
- "Homeless people sue San Diego over alleged 'inhumane conditions' at Safe Sleeping sites" - Times of San Diego, August 26, 2025
- "Lawsuit alleges 'inhumane' conditions at San Diego safe sleeping sites" - KPBS Public Media, August 26, 2025
- "Homeless people sue San Diego, say rats, elements make safe-sleeping sites unsafe" - NBC 7 San Diego, August 26, 2025
- "San Diego homeless sue over reported unsafe and unclean safe sleeping sites" - FOX 5 San Diego, August 26, 2025
- "San Diego homeless camps face lawsuit over 'inhumane conditions'" - CBS 8, August 27, 2025
- "Safe Sleeping Program" - City of San Diego Official Website
- "Lawsuit filed by attorneys & unhoused regarding City of San Diego's Safe Sleeping Sites" - ABC 10News, August 26, 2025
- "Mayor Gloria Opens Second Safe Sleeping Site for Unsheltered San Diegans" - City of San Diego Official Website, October 20, 2023
- "12 deaths at San Diego's Safe Sleeping sites raising concerns among some participants" - ABC 10News, June 26, 2025
- "San Diego directs more money to its first safe sleeping site, though few have found permanent housing" - San Diego Union-Tribune, April 18, 2024
- "After surveying San Diego homelessness, a United Nations expert left comforted and troubled" - San Diego Union-Tribune, January 31, 2024
- "Sleeping Site for Unsheltered Gets Boosted By City" - The San Diego Voice & Viewpoint, January 6, 2025
- "Are San Diego's safe sleeping sites working?" - CBS 8, 2024
- "Morning Report: Progress Report on the City's Safe Sleeping Sites" - Voice of San Diego, May 14, 2024
- "San Diego's safe sleeping sites are getting more tents, other plans remain in flux" - San Diego Union-Tribune, October 2, 2024
- "Safe Sleeping Program Expands" - Inside San Diego
- "San Diego to open Balboa Park 'safe sleeping' site for unhoused residents" - KPBS Public Media, October 20, 2023
- "Safe Sleeping - Dreams For Change", July 24, 2024
- "How San Diego's Safe Sleeping Sites Are Faring on Housing" - Voice of San Diego, May 14, 2024
- "Comprehensive Shelter Strategy" - City of San Diego Official Website
- "Mayor Gloria Announces Historic Plan to Create City's Largest Homeless Shelter" - City of San Diego Official Website, April 4, 2024
- "Overdose deaths in San Diego drop for third year in a row" - San Diego Union-Tribune, August 22, 2025
- Homeless people sue, alleging 'inhumane conditions' at Safe Sleeping sites
- "945 Purple Flags Honor 2024 Overdose Victims as San Diego Marks 21% Decrease in Fatalities" - San Diego County News Center, August 21, 2025
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