SR-6-P (28)
CARS:CNS:BS:srnlc
council Meeting: September 8, 1992
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Santa Monica, Californla
TO:
Mayor and City Council
FROM:
City staff
SUBJECT:
Recommendation to Authorize
Policy Amendment Relating
Consideration at the National
congress of Cities
Submittal of Proposed
to Homelessness for
League of Cities Annual
INTRODUCTION
This report requests authorization by City Council to submit a
proposed policy amendment to the National League of Cities (NLC)
for consideration at the National League of Cities Annual
Congress of Cities on November 28 - December 2, 1992 in New
Orleans, Louisiana.
DISCUSSION
Prior to the annual meeting of the National League of cities,
member cities are invited to submit proposed amendments for
possible adoption by the congress of cities.
Those amendments
which are adopted typically specify city positions on federal
roles and responsibilities, policy goals, purposes, principles
and/or program characteristics within the broad subject areas
covered by existing policy.
If adopted, the amendments are
incorporated into the NLC's National Municipal Policy which stays
in effect until amended or rescinded.
The specific guidelines
for separate resolutions are as follows:
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a.
They shall--in their subject matter--concern
policy and program needs, issues or problems
nation's municipal governments;
shared
of the
b. They shall be concerned with federal government policy
and, therefore, be addressed to federal government
policy-makers;
c. They shall neither contradict nor duplicate existing NLC
policy statements, except where they are intended to
amend or repeal such policy;
d. They shall not compromise the independence or integrity
of individual member cities to pursue any course of
action adopted by appropriate municipal pOlicy-making
bodies;
e. They shall not compromise the bUdget-making, program
determining or priority setting role of the NLC Board;
and
f. Non-continuing separate resolutions shall be considered
only when they do not conflict with or contradict the
existing National Municipal Policy of the NLC.
The proposed policy amendment which is recommended to be
submitted to the National League of cities Congress is attached
for council review. It pertains to the national issue of
homelessness.
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This issue represents only one of the City's major policy
concerns but is certainly among the most significant national
issues which impact Santa Monica.
BUDGET/FISCAL IMPACT
There is no budget or fiscal impact associated with this staff
report.
RECOMMENDATIONS
It is recommended that the City council authorize the submittal
of the attached proposed policy amendment to the National League
of Cities for consideration at the Annual Congress of cities.
Prepared by: Barbara Stinchfield, community and Neighborhood
Services Manager
Attachment A: National Municipal Policy of the National League of
cities regarding homelessness
Attachment B: Proposed amendment to National Municipal Policy
regarding homelessness
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ATTACHMENT A
. pro....Hle. ln~enbve8 to bUSlnCS5CS and de"cklp~rs tor
tymg In chlld care with their development J.ctIVJtI~'"
'/ 4 Home/essness
In calllS all across the Untted Stat", tncrOl\$mg number:. ot
men. women and children are wIthom ~mument hou'itng
They hve. Instead, in the overcrowded residences of fdmlly or
fntlnds. m emergency shelters when ~pa.;e p.efmlt~. It\
abandoned and unaafe bUllding'! and cars Or. II:; &II l& huH
resort, on city streets. At best, these condlllons are t~mrx;r.lr:y
and constantly changing; at worst they can he Ilte-thfeut~m\!
The make-up of Amenca's homeless populauon .., as dlvCf'i1;!
as the nation's population u a whole. Present In bath urbal'l
and roral itea:i, It Hi a popul:.\ti(ln moreasina1y cumpn:<eU ot
fal111l1es. and largely of fanuhes headed by women. It IS also
a population whJt:h dIsproportionately numbers mmontle:i.
people with physical and menml dIsabilities allJ otheTh who
have eltpenenced. economlc misfortune. La th~ latter years: (It
the 1980's, this homeless populatIOn J1lllY total as fTWny II:'
rhMe rwlhon people.
The explanationll of contllmporary home-I~n.;:'i" In thl~
country are nor the llIIml! as thOM (If preV10l.l:. ~rWl. WIth tht:
smglc exception of th.e Oreal DepreSSIon. Ind~t.l. the \:llmh-
non of bemg homele8ll today Mpr$~nto; lI.n l\.:....orlml:nt ~lt
personal, social, economIC and political problems. ot~en
present in comblnalions. On rhe scale wbich It exists today.
bomelossness suggesla that then: I.N fundamental t.retlclenCle~
In tfl-e SOClall mechanlam aV.KiI.bl. to mtll"t bll.":IC numun nCl:u.,
ChIef amonll these aeeds UI that for adequate and afford..bl~
houllmg-fOr fam.UiC$ lIS well as mdlvldl1als:. Trends In L1rblln
development. redevelopment and pnv8te nou..mg ITltlrk..:l'i.
coupled With redUCtions IQ government ~ndJni:, have Sc:rv~v
to dtftUnisb tl\C number of low inc;ome family umt"i. the ~upply
afsmg-le room occupancy (SRO) dwellings, and th~ aVlIlhlhJ!l-
ty of <:ongrepte residences for mentally bandicapped p.:l"!oOnlo.
1n addition to DOU&1fl1 for adequate in<:ame cntu:al niil,w tnr
adequate Income support, for job Imming lInd c:ml'loyllttnt
asslslarlce and for health and mental h~lth care,
NLC believes that lIlunechate. actJ.OI\ must be taken by all
love's of government to addrus the dire need of homeleM
men, Women and clnldren 1D our $OC~ety Moreover, thd1tc:
actions must he taken In conjunction with tbe effons OJ
community based orvanlzahOftS,..rehg,ou... InllUfutlOns. rlrlvat~
pbllanduopleJ1 and private industry
Specifically, dfforts to usist the homele5S wYlde IntO threl:
areas: emerJency assistance. long.term a..tl..O;I~ll1.nc~ .lnd
preventive measures, The recommended actions for loc.lI.
&tato and federal ::ovcrnments In each of these ol.r~.ut drl!!'
lnsert underl~ned verbage here.
EMERGENCY ASSISTANCE
Local G()\'ernm~nlS
. .hsess Ihe nee-ds af the local homeless population,
mOnllOr ona-omg etforts and mtelrate the needs of
tne homel.ass Into o\lerall plannlnl ac.nvnies;
. ~srabhsh and operate ~mergency shelters and Dut-
reach facthl1e!):
. I1ro\! Ide fUnding and llS&\stance to community orpm-
zaUons whIch operate shelters and outreach facilities;
· make available surplus butkl1ngs 3Zld scl100lt for use
M: temporary and/or permanent bousmg;
. whllf"i! feasible, make available taXwforoclosure
propemc$ for hOUSing homeless familia;
· coorwnate resources .and matena]s from other
CDmTTNn1t)' SO\lrtt~ to u;sui1 sbll.l~~ and outreach
~aellllles:
. pTOvld. I!ducatlonlll 1WI1i1tanl:., !iu(;b lIS vooatiodi.1
tr,ilnlni dnd Wm:>portatlon, to homeless childreu and
to work WIth '\chooi boards llnd distncts to ease
r~sl'hmcy ~ulrcmt:nt!l ot Sl;hool dt5tncts;
. a.dOpt lonmg practices which pemut the siting of
sh.:lters and tr-.msUlonaJ rCSldentlal faca11bClS;
. decrlmll'lldize vilirlUlcy-apeClfic: law$ and repeal
ordmances prolllbitmg public sleep'dl_ ovennght
oc::upaney of parks. etc.; and
. pnw~nt unn~ssary eVictions and proVide tental
a....<;I~tance to families seek.mg permanent bousang.
St.are Gov~I1lmeJl[:ol
. ~nsu~ thCl proVISIOn of adequatCl public lJIifi.l!:nenl
lI:l~l$tance p1lyments;
. adopt pohCle3 WhICh support rhe proYlSlOftoOfllome-
Jeo\i; care where the problem .'U$ts.
. proYule fundmS and techmc;a.lllll8l$WlCe to~uU"
ties ~ptn~Dcmg homeleslll1ess;
. prOVide funding and technical &sSlStanc:o too COtDllJ1loo
"Ity bL'i<<i orH'anizatlons serving the homeIeIa:
. partn..lpate In the fedend/state Emergency AJaistance
FunLl Program as a component of the AFDC pro--
1:1' d.m ~
. malce ~vallable surplus state properties, such as
drTIlOnes. .md supplies such as beddlnr, blll1lCets.
<!ire. and
. ~nd ~tllht restnctlons on length of stays In
~tale-tunded shelters for battered women and children
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and require transition assistance. mcludmg Job
tralrltng. nMltb ClInt and mental health can: 'lc:rvICt::i.
upon departUre.
Fedl!;raJ Govemmen[
. provide federal sub$ldle5 fOT thoil o~ratlOn ot home-
less shelter fDClllhes.
. conunue .l.nd expllnd the Em~rgr:nl;Y Flxn.l dOloi
Shelter Program:
. expand d~m()nstf1ll1on proar:ams which provl~
fundlRg for housmg and emergency mental health
serYlCCli to homeless. menrally dl3llbled persons; and
· intenSify efforts ro Identify and. mab ~v.:ulablc
surplus federal propeny and equipment for use lll>
emergency :iheltetS
lONG TERM ASSISfANCE
Local Governments
· proVide longer4tetm tranlSutonall1hdkr" t()r ~r~on"
unable to find pennan(ll1t hOUlilng;
.
consider turnmg over surpl~ hou."lOg unlllo> to i.nm-
mumty based orsanlZ&tlons With demono;trateu
capacity to meet and maintain hou~an~ l;:ocJe "UIn-
dards;
t:lIllI.hii~h 1l1clu51onary rtmlng and lmklllfo pl'O!:ram" It)
mItigate ~he loss of low lncomcl and aJd m:w UI'IiC" to
the lOW-income hOlL'llng stock;
fosliiiir puhhc/pnvatt; parm~T'lInlpS for low mCllme
howang constl11ctlon.
. comllder publIC and/or pnv.rue K'lUI~llIon ot lougln~
raclhhes ud smale rooms occupancy hOlds hlr
shelters and ~T1I'IUKlIl& bOll.lnng; IlIKl
. coordinate local Private Indwdry Council cffDrt'l 10
proVide employment and training opponumhll!lo to
homeless Individuals.
.
.
State Governments
· finance construcUOD of low tRCOtnd houal"S through
tax dechcaholls. mortgllJeS bond-II. horunng tru.~tlllm,h,
and direct spendinl;
· provide technlcalllSSlstance to ClUes llnd 'Communuy
organlzahons II! tbe development of trarnlltlonlll oUld
permanent low mCOR1e hoUSing programs; and
. revIeW and revise procedures for patient dll,charg~
from state hospnals and aftercare '\eJ'Vlce:. to en"ll~
the tr-rmltlon of adequate hOIl.,mj
Federal Government
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. restore philosophical and financial cormmtments to
low tnCO~ hOUSing pmgIllnlS such as Secl10n g New
ConstruCt!OIl and Su~tantud RehllbihtahOn propm.
FMHA proi:rams and the 202 HOUSIng Program for
the dd,=rly and handlcapp&d;
. wncre pOSSible make available HUD-fon:closed
propcirtles for hOUSing homelessoe!tS famIlies;
. I mpmve llCCel;S to federal en rl dement ptopms for
homeless persons by' 1) conducting VA 8IId Sotaal
S~unty AdnumstnUlon ourrea.;:h aCI1YIUa In sbc:hel1i
and dTop-ln facdHles and 2) extendlna S5I heftefilS
trom thr= months to one year for shelter residents;
· .mea-unge CDHG fund usagil faT bamelea assas--
tance;
· ~ the lmpac~ of fl!d~ra) poh(;i~. lIuch as the
farm Bill. on the growth of rural homeless families
and andlVlduals.
. modify .xllltln!! regulaClOns In the FDlJd S~
Prol:ram by ~l!;tl:ndmg outreach to bomeiea: sheJtcnl
llfId gnmuDK Wlllvers far the purchase of prepared
l11d3ls In shelten. and ~Isewhl!n!.
I1UIndare partlclpatlOn by ,i1J states In the Emergcmcy
AloSbtlllll;O F\10d prO!,lr"dm u part of AFDC;
ehmmate hnuts of SlaY In shelters for runaway and
homeless youch; and
.
.
.
dUlJIgt: re~ideRcy reqUlro!ll1tmlll to ensure thif bomv
Ies.'\ p.;n.ons are ehglble for federally subsidized
b.mefilli liuch a:i rood ~[3mps. AFOC, SSI, Medicll1d
And VetenullI' PemilOnS
PREVENTJVE MEASURES
Local GovlSmments
· \Wtablash lUKl enforc& antH~.I'IDm=t \Mil'" to
proldct tenants from llbldlord preMU.....1
. ~tabilllh or lItrengthcn ordinances prolu~
IWIlIry evictIOn..
· rdVlew and revIse local hospital discharJe poIiciea to
~nllUAl releue mto proteCtive eDVII'Dl'.....i: <<"ado--
Quale I"It8idilllbaJ setbIJI.
. adopt nouslng poliCIes which promote the~a-
tlon of qualIty wuts In the stock of rentaP-troIamC;
. UlXument the :!Calc and nature of the local homeless
problem tor better research and targetJDg of sctV1ces;
and
· provuJe communuy dducallon about the need for
hom~Ie:'l.'1 lIhellers and n:.:ndenual facilities.
State Govemm.ml'l
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. reVlOW and Improve the adeQuacy or Income: mamt~-
nmco and health b~n~fit$ tor f:.lmlh~ "" w~lI ll'i
indIviduals.
. review and revIse foster care l~rm\llallOn arr.mgoe~
menlS to ensure sucees;;ful tr"JnSltlon mlo mJ.lep~ntit!nt
hVlng~ and
. ~rdu1&te l!tA~ vocational traIning and c:mplQymenr
services With. mental neaHh instItutions and homd~
servIce providers.
F edenl Government
. promote the CDllMrvallon of tow mc~mll hou'lrn g rOi
farruIte3 and individuals:
. support rural housmi programs to mmlmlZ.e hOnle-
leas nugratlon to cnics,
. review Secuon 504 for tile RehahllnatlO!l Act to
dllmnllte \.!lllCnmmauon azatnst tno: mr:lltlllly ,11:;-
aMed:
. ~xrend SSI ehgJbllity to three month" tor 'lay!! In
Medll;~lId fklhtltlS and Irnpro\le prlll-r.s)o:a.lIl: pnl(:e-
dures to ensure receIpt ot benefil'! ul'On dl!ichdJ1.!l!:
and
. provIde tli1. Inc~nu"'el:i tor Iho: ~t)n;':lructltln .!.nl.l
rehabllitauon of low mtome hOll~mg.
5. ImmlgraItorj and Re.fisg~e Policy
\\'lute City officials welcome refu!ees to dli!U commUnlUe$
and lJ.Ulst them m adapttnS to and 'llnJOYtny tho henetilll at hfo:
Lll OUr nlAhon's CltUl:3, urban n:8Ources an: becommg. mCrl:lt.'~
mgly sc.arc:e. particularly In housm&. eaucallon, empiuymenr
oppartumluls and iOClal ~......ices-~lllld are ma/Jtquulc to 1T1~l:!f
current needs. Th8 fedetill government must dl;:vdop a
cobeslVe policy to lIddRlSS and aU8Vlate the Impact of refug~
r~ulement problcmB In urban CDmm\lnltlo*\. Thc puhey
mould cmnply with tM Refusco Aa of 1960 1.\etimhnn (')t 1l
refugee as MY Indiv\dual that flees 10 the Untt'td Stoll!:.>; to
~pe dan;~ of pohtK:&l pe~tion and th...t 1\ tlOi\nllt or
unwiJhng (0 ~"' to hit or her homeland hWII:d on u
well-founded fear of persec:utum. This definition shuuld be
applu:d to 1I1dividUlJI!I seeking refuace statu5 rcprdle;.,~ uf
thCIr race, color, rehiiOtl, xx. aee or natlonal origin,
Further. the determinatIon. by the fedend guvemm.=nt, of.1n
mdl vld uar s SUI us as a .. pohhcal ~ versus .. ~conomlc' n::tu~~
should be made rn an obJecnve and even-handed I1U\nner and
lrrespectlve of the pohtu:al Ideolo,S,'Y of Ill.: country trom
which a refu~ flees or the foreign policy JIO"ltllm nt the
United States toward that country .
Refugees are II federal responSibility. Stille o\nd IIJl;a] :;oyt:m"
merns have had no con(rol at aU over the fedt!ral (j~CISlillh to
admit refugee.~llhout 600.000 In rhe la..'lt two yt:!'dn; "Ion!:
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The tederal government has an unavolliabla 1"e$pOlUIlblhty 10
provJl"h: bmn r~urce:. lUld IBadersblp to nelp loal govern-
ment.ope with the r~ults of these federal dcclSlons.
The Teu~ral ~ovemJ1'll:nt must d~\'elop :L ctIhe$IVC pohey to
adare<;s and aUevlate tbe Impact of refu&ee resettlement
problems m urban commun1l1es The federal IOvernment
mUSt lMk~ II.D oflgolni fiSQI commnment to adeq\l8-tely fund
refugee assistance prQ~rams
The Retu!:~ AssutanCe Act should b8 l'C8uthonzed and
provIde 100 pllTCent relmbu~melU of local costS for the first
36 monllui a TCifuaee relocate>> Ul the Stat~. Federal comnul'
ment fOr fun(j1nlJ must be conSidered .It tho ..me hrne a
ueclslon IS made for relocatIon and resettlement.
Local gov~mment8 that recewed Slgnlficant mflows of
Indochlllese refugees after the 19W CeJ1SUS should have theu
oopulallon counts for tcdcral proJr.&ms such II.ll revenue
~hanl\g a.dJWi(~ Immediately, as was done for CubanlHaitllU1
omtrants In EllecUtlve Order 12256.
Orhtr forms of Impact aid to .ff~red loc...lttJes should also be
prOVided. Local governments should unmeduuely realVCI
lIppropnatc technical U$15tancOl and one l1uncbed percent
I'I!lmbU~m~nt tOT ttu! Cosb they Incur for the inftu~ of
retl.\g~ and for partlclpatmg 10 refu~ee tJ'lUlS1uonm, effortS.
Addmomd Department of La.bor and HouRm. and Ufban
O~vtloplNf\c raoUrce6 should be pro"'lded to miniml7JP. me
competlhOn hetwel:n disadvantaged AmenCUIS Iftd refugees
tor scarce publidy lWII5ted hOUlllng tesourcu Md employment
oP!Xlrlunltl~ Thl::Td .should also be increased aid to local
educatIOn prog1'1lntS o!xpe-nencmg larae rempe cmroUrnents
llnd demands for English langu3l:e proticu!lney eoUI"SM for
adulu
Fundmg for rtlmbun.ement of caso JI18nIIgemcIif,~ fot
R\\W umval$ ill IIdditlOD to cash and medICal II , ""- muaI.
bo! provided by the: federal g.overnment. -~
!Ihould mclude. ,=mployment tratnma:. lanPll-~.acquilihOn.
ctuld C_t'l! and ~cultul1ltlon.
f:.tttcllve r41tullee' rlll..'l4Crlement requires the direct UlVO)vflMnt
of iOl.:aI ~1<<lcd otficials. State lUl4 load a:O'f-I_._.~~
~ Involved in planOlna for IOlha) refugee p~L Cibt$
should bd gIven ~lmeJy nohficanon and relevaDt-uiifonunOG
\"()n~mmg rhe: pliUlned inmal placement of relilpl and ~
hkely secondary l1llBfahon patterns. Counties.... DObfy
Clt\ts Immediately upon knowledgl:; of the Slate oep..uneut's
J~I~lon III ord~r to ctf~uvely plan resettlement cfforu..
In adthtJon. the Coorchnaror for Refugee Affaus shoakl work
IOW.rd developl Q! b.mer (:Qordlll~lon and coopenlllOd
nO:lWeen MaIItS. local governments, volunau")' reeettlemenl
agenCIC'l IIno refug~ gmups at the local I~J. The Coordina-
lor ::.lmuld ,,1'\0 fJeveiop cntena fOT an Imp;act profile and
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RESOLL'7l0N · m
ASSISTANCE FOR HOMELESS FAl\ffi .Wi';
WHE.REAS, the Aid to Families with Dependent Children (AFDC) program gives states an option
to operate an Emergency Assistance to Families Program (EAF) and to provide
additional Special Needs Services that the state deems n~SsaIy; and
WHEREAS. many states and localities use these programs to provide shelter and support services
such as counseling. child care, and school attendance \0 homeless famil1es; and
WHEREAS, in June 1989, the Department of Health and Hurn.u Services released a report. Ils~oJ
EmeI!l!ncy As!ist.an~ and AFDe Proerams to Provide SheI~r to Fa111Ul~s,
recommending that emergency assistance be limned to thirty consecutive days under
AFDC;
NOW. THEREFORa BE IT RESOLVED that the NLC strongly urges Congress to enact legislation
to give states and local !:ovemments flexibility to provide 5CrVJces under the EAF
program beyond thirty days.
Adopled al NariolUli League of Cities Annual Business Meeting on December 16. 1991.
68th Annual Congrus of Cities and Expostnon. Las Vegas, Nevada
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ATTACHMENT B
4. Homelessness
In cities all across the United states, increas ing numbers of
men, women and children are without permanent housing. They
live, instead, in the overcrowded residences of family or
friends, in emergency shelters when space permits, in abandoned
and unsafe buildings and cars or, as at a last resort, on city
streets. At best, these conditions are temporary and constantly
changing; at worst they can be life-threatening.
The make-up of America's homeless population is as diverse as the
nation's population as a whole. Present in both urban and rural
areas, it is a population increasingly comprised of families, and
largely of families headed by women. It is also a population
which disproportionately numbers minorities, people with physical
and mental disabilities and others who have experienced economic
misfortune. In the latter years of the 1980' s, this homeless
population may total as many as three million people.
The explanations of contemporary homelessness in this country are
not the same as those of previous eras, with the single exception
of the Great Depression. Indeed, the condition of being homeless
today represents an assortment of personal, social, economic and
political problems, often present in combinations. On the scale
which it exists today homelessness suggests that there are
fundamental deficiencies in the social mechanism available to
meet basic human needs.
Chief among these needs is that for adequate and affordable
housing--for families as well as individuals. Trends in urban
development, redevelopment and private housing markets, coupled
with reductions in government spending, have served to diminish
the number of low income family units, the supply of single room
occupancy (SRO) dwellings, and the availability of congregate
residences for mentally handicapped persons. In addition to
housing for adequate income critical need for adequate income
support, for job training and employment assistance and for
health and mental health care.
NLC declares a "national state of emergency" regarding
homelessnes5. The NLC urges all local, state and federal
officials to work quickly and cooperatively to respond to this
national emergency with the same sense of urgency accorded other
natural and economic disasters facing the nation.
NLC believes that immediate action must be taken by all levels of
government to address the dire need of homeless men, women and
children in our society. Moreover, these actions must be taken
in conjunction with the efforts of community based organizations,
religious institutions, private philanthropies and private
industry.
(policy)
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