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SR-5-A (26) 5-11 CITY OF SANTA MONICA INTER-DEPARTMENT MEMORANDUM APE? 1 A 1992 DATE: APRIL 9, 1992 TO: MAYOR AND COUNCILMEMBERS FROM: CLARICE E. DYKHOUSE, CITY CLE~ ~4~ SUBJECT: STATUS REPORT, IMPLEMENTATION SCHEDULE AND COST ESTIMATES FOR THE SANTA MONICA TASK FORCE ON HOMELESSNESS: A CALL TO ACTION (ITEM 5-A CONTINUED FROM COUNCIL MEETING OF APRIL 7, 1992) Attachments I and II, only, will be considered at the meeting of April 14, 1992. CED:ra - 1 - ?-IJ ~PR 1 4 1992 -- C.;TI"~ sl'1- council Meeting: April 7, 1992 CDD:CNS:JR:srtfh4 ~ 1 4 1992 Santa Monica, California TO: Mayor and City council FROM: City Staff SUBJECT: Status Report, Implementation Schedule and Cost Estimates for The Santa Monica Task Force on Homelessness: A Call to Action INTRODUCTION This staff report provides a status report on implementation of The Santa Monica Task Force on Homelessness: A Call To Action. Additionally, this report recommends approval of ini tial implementation measures including introducing for first reading the attached Encampment Ordinance (Attachment III) and directing the Planning Commission to recommend provisions addressing housing facilities for homeless people and other affordable housing issues in an interim ordinance The following provides a list of attachments included as part of this report: Attachment I: Cost Estimates for New Initiatives Attachment II: Implementation Schedule Attachment III: Encampment Ordinance (with background analysis) Attachment IV: Identification of Possible Alternatives to Zoning Ordinance. C-P 6JIIN tie t:> ~ It - 1 - ~ 1 4 1992 , ~ + ~ . \f , , "" <'hJ..., ,,, f) ,. .;I BACKGROUND In March 1991, the City Council created the Task Force on Homelessness to formulate recommendations on immediate and long term action for the City to better respond to the continuing and growing crisis of homelessness in Santa Monica. The Task Force was asked to develop a balanced approach considering the need for assistance and services for homeless people, public safety for all people in Santa Monica, and advocacy to urge the county, state and Federal governments to solve this growing crisis. The Council-appointed Task Force represents diverse community perspectives on the issues of homelessness. The group is comprised of residents: business, religious and social service leaders; and community members knowledgeable about housing, neighborhood issues, research, or issues related to homelessness. The Task Force worked for over nine months to gather input from the community: learn about existing resources; assess needs: define common values: and ultimately create balanced and comprehensive policy and program recommendations to present to the city council and community. It worked to integrate the diverse perspectives and needs of the housed and homeless in Santa Monica. In this initial phase which lead to the completion of the Call To Action report, the Task Force was asked to act as community problem solvers and advisors for the City. Given the complexity and breadth involved in the issue of homelessness, the Task Force organized their Report into the ~.'~~. C :Q110~~Cj "a,e:st-- PUblicf Health ~\ , ,v"".~u.,~ J ~.~1i and Safety; Social Services; - 2 - Shelter and Housing; Resources and Funding; and Advocacy and Partnerships. The policy and program recommendations in the Task Force report set forth a multi-year framework for the city, including sixteen Task Force identified priorities. The Task Force presented its report to the Council in December 1991. At that time, the Council held a public hearing on the report and in a subsequent Council meeting, directed the staff to begin implementation and develop cost estimates for the report recommendations. The Council discussed, reviewed and approved, in concept, the Task Force Call to Action report. Upon review of the specific priorities identified by the Task Force, the Council further directed the City staff to: (1) draft an ordinance prohibiting encampments: (2) move the FAITH Meals Program indoors and explore the regulatory process to prohibit large ongoing outdoor distribution of food; (3) assess the needs of priority shel ter/housing proj ects: ( 4) assess zoning changes needed to facilitate the development of a range of affordable housing: (5) assess City revenues, in the mid-year review process, for funds to implement the Task Force recommendations; (6) work with the County of Los Angeles on developing a stronger County role in dealing with homelessness in Santa Monica: and (7) explore possible litigation against State/Federal Governments. . The Council requested that the City staff quickly begin these implementation steps and report back to the Council within three months. - 3 - DISCUSSION The following Discussion section will provide: (1) an overview of the cost estimates (capital and annual operating) and implementation schedule for all Task Force recommendations, as summarized in Attachments I and II; and (2) a status report on Task Force and Council-approved priorities and other key recommendations of the Task Force Report. Cost Estimates and Implementation Schedule Attachments I and II of this Report provide charts which summarize all recommendations from the Task Force report. Attachment I provides cost estimates for those recommendations with a new cost impact. The chart also designates, where applicable, capital and annual operating costs; any City support identified to date; and describes the range of possible sources for funding of the recommendation. Attachment II: (1) assigns a beginning implementation year to each recommendation (implementation may involve additional analysis to determine project feasibility and funding only or may also include project startup); (2) identifies which City departments, other agencies or entities of government may have significant responsibility; and (3) indicates whether the recommendation has a new cost impact. Status Report Since January reviewed and 1992, staff from relevant City departments have analyzed the recommendations in the Task Force - 4 - report, assessed recommendation feasibility, developed initial cost estimates, assigned a beginning implementation year to each recommendation, and identified key action steps for recommendations in the current fiscal year. The Task Force report contains 117 recommendations which are distributed in the key sections as follows: Publ ic Health and Safety (12); Social Services (35); Shelter and Housing (27); Resources and Funding (7); and Advocacy and Partnerships (36). Of the total recommendations, 97 can be accomplished without any additional funds. 47 reco~mendations require the support of the County, State or Federal government through funding or policy changes. The proposed implementation schedule (Attachment II) identifies 39 recommendations to begin immediately, 49 in Year 1, and 29 in Years 2-4. For the purposes of this report, "immediatelyll refers to the current fiscal year, FY1991-92; Year 1 refers to FY1992-93; and Year 2 refers to FY1993-1996. The following provides a section by section status report on the Task Force-identified and Council-approved priorities (which are noted as such and in bOld-face) as well as other key recommendations being addressed in the remainder of this fiscal year and next year. PUBLIC HEALTH AND SAFETY o onqoinq full scale enforcement of hiqh profile crimes, with evaluation of any additional resources needed to implement this recommendation (Priority) Status: The Police Chief is confident that the Police Department will be able to provide full enforcement of high profile crimes and crime areas with the additional twenty officers which are in the budget for FY1991-92. - 5 - Five of these twenty new officers have City staff is currently in the process resources necessary to hire the officers. been hired and the of identifying the remaining fifteen The Police Department has recently undergone a major reorganization. Through the creation of the Office of Special Enforcement, the department has the abil i ty to provide more targeted and effective patrolling and law enforcement. The Office of Special Enforcement includes the Metro and Narcotics Sections which have the capacity to target drug dealing in the parks. The Crime Impact Uni t, which inel udes the H. E . L. P. Team (Homeless Enforcement Liaison Program), can respond to citizen complaints, robberies and other illegal activities in city parks and other public places. In addition, the City staff intends to move the park rangers, currently operating out of the Cultural and Recreation Services Department, to the Police Department to further enhance the police resources to meet this and other Task Force recommendations. Implementation Beqins: Immediately (contingent on full funding) Annual Cost: $1,510,874 (currently appropriated) o Publicize a phone number to report aqqressive panhandling status: The Police Department recommends utilizing and publicizing the General Police service Line (458-8491) for reporting aggressive panhandling rather than creating a new dedicated phone line. Through the Neighborhood Watch Program, Business Watch meetings, Watch Out, On Montana, Business Awareness Bulletin and other local neighborhood publications, the Police Department will publicize information about the use of the General Police service Line. Furthermore, the Police Department will provide community information and education about the proper use of 911 versus the General Police Service Line. In addition, through the use of the Police Department's new computer aided dispatch system, more information about the location of aggressive panhandling can be collected and tracked. In general, the Pol ice Department is prov iding enhanced public information and education for community, civic, residential and business groups regarding personal safety and securi ty , in part to address same of the community concerns related to homelessness. Implementation Begins: Immediately - 6 - Annual Cost: In-kind o Develop a Civilian Assistance Team status: Because there are a variety of outreach programs in Santa Monica (social service, mental health, health, park rangers, Police Department H.E.L.P. team) and in order to determine the most effective way to implement this recommendation, in Year 1 the City staff will work with existing outreach teams to ensure improved coordination. Subsequently, the staff will recommend the best way to implement this recommendation which is intended to improve outreach and access to services to those people with alcohol and drug problems. In addition, the City staff will work with appropriate Los Angeles County staff (from both Supervisor Ed Edelman's Office and the Departments of Mental Health and Health) to determine the feasibility for County funding for such an alcohol and drug outreach program. The range of annual cost is based budget information from a Civilian Assistance Team operated in the downtown area of Los Angeles. If start up of such a program is deemed feasible for Santa Monica, implementation would begin in Year 2. Implementation Beqins: Year 2 Annual Cost: $100,000 - 200,000 o Plan and implement the Alternatives-to-Panhandlinq-Givinq Project Status: In order to reduce the incidence of panhandling in Santa Monica, the Chamber of Commerce, Bayside District Corporation (BDC), Westside Shelter and Hunger Coalition, and City of Santa Monica are working together to create a pilot program in the downtown area to encourage donations to local non-profits providing homeless assistance while discouraging giving to panhandlers. Ideas under review include working with local theaters to provide PSA's on their screens and to involve the local restaurant association in an "Alternative Giving" campaign. Implementation Beqins: Immediately Annual cost: In-kind o Police Department statistics should distinquish between "address unknown" (current Police Department definition for ntransientn) and homeless - 7 - status: The Police Department will evaluate how to implement this recommendation. Recent Department directives have instructed officers not to automatically list a homeless assistance agency for a person who does not provide an address. This directive will be reiterated and seeks to eliminate any misuse of the addresses of local social service agencies which may have resulted from past practices of police officers listing a social service agency address for someone identified as homeless, when in fact the person may not be using the local services for assistance. The Police Department has conducted preliminary research through contacting the Police Executive Research Forum, a professional research and training foundation headquartered in Washington, D. C. and the leading proponent for police accreditation and research. The Police Executive Research Forum describes a "street person" as: "an individual who spends the majority of his/her time in public for non-job related reasons regardless of whether they have a regular and adequate nighttime residence. These individuals may have some type of disabili ty , be it physical, medical, economic, or mental. A' street person' includes the homeless. tl This definition may provide a basis for the Santa Monica Police Department to form an appropriate local definition to-implement this recommendation. Furthermore, the Police Department will establish guidelines and training for officers about distinguishing between "address unknown" and homeless people. Implementation Begins: Year 1 Annual Cost: Not applicable o Plan and implement an Alternative Sentencinq Program Status: The City Attorney's Office has been working on developing possible options for the creation of a City-operated Alternative Sentencing program. During the deliberations of the Task Force, the City Attorney's Office prepared a detailed report for the Task Force on models for this program. An Alternative Sentencing Program would raquire at least one staff person to coordinate the project, develop appropriate community service placements in Santa Monica, complete the necessary paperwork to verify completion of community service for the courthouse, and work with relevant City departments and local agencies to ensure the - 8 - success of the program. Such a program could be further enhanced by hiring community service crew leaders to provide supervision for individuals assigned to community service work as an alternative to traditional court sentencing. Furthermore, the program could be expanded to include mandatory treatment (such as drug and alcohol programs), which would require additional coordination. At a minimum, city staff will assess the feasibility of assigning existing staff to this effort or linking an Alternative Sentencing Program to new employment programming in the community. Implementation Begins: Year 2 (contingent upon funding) Annual Cost: In-kind or $ 60,000 - 150,000 maximum o Ensure that all public restrooms are properly maintained, secure and accessible. Explore feasibility of openinq public restrooms and showers at 6:00 a.m. status: CUrrently, the CUltural and Recreation Services Department maintains twenty-six restroom facilities throughout beaches and parks in Santa Monica. These fac il i ties are opened each morning between 5: 30 and 7: 00 a.m. Two facilities (Memorial Park and the Pier) have recently been renovated to include showers and in Year 1 will require additional operating support to provide seven days per week operation. Implementation Begins: Immediately Capital Cost: $243,831 (currently appropriated) Annual Cost: $ 52,248 (partially appropriated) o Provide some type of storaqe or lockers to be used by homeless people status: Staff from relevant city departments and local service providers will assess the feasibility of implementing this recommendation in future years. Due to the operational difficulties of overseeing the use of storage lockers, further evaluation will be essential to ensure that lockers will be well managed and maintained. Implementation Begins: Year 1 Capital and Annual Cost: Further feasibility required analysis - 9 - o Draft an ordinance prohibiting encampments (priority) status: At the January 21, 1992 City Council meeting, the city council directed the City Manager to hire counsel to draft an ordinance prohibiting encampments in Santa Monica parks and pub 1 ic places. The attorney, selected by the City Manager, met with the Task Force in February and has reviewed Council transcripts and reports on this issue. Attachment III provides an analysis and a proposed ordinance to implement this recommendation. Land Use and Transportation Management Department staff reviewed the proposed ordinance and determined that it is exempt from CEQA since it is not a proj ect which has potential for resulting in a physical change in the environment. Implementation Beqins: Immediately Annual Cost: Not applicable o Enhance visible recreation activities at all City parks particularly Palisades and Lincoln Parks to create positive and invitinq park uses for the entire community status: Overall participation in the Recreation Division youth programs has increased at city parks as a result of the goals and objectives of the city's Ten Year Youth Action Plan. Lincoln Park has recently been the site for several pUblic hearings for the park renovation plan being developed. These hearings brought several hundred people to the park. Another publ ic group has been formed to provide input into problems at Joslyn Park. The group held a family-type picnic which had over 120 in attendance for the day's activities. The Recreation Division has developed a comprehensive plan over the past year to make Lincoln and Palisades Parks more attractive environment for all members of the community. This has been accomplished through a variety of measures. A special emphasis has been given to increase youth and family participation. Youth afterschool attendance has increased at Lincoln Park by 25 percent. This has been accomplished by increased programming, formal and grass roots outreach to local school PTA's and neighborhood parents, and increased visibility of park rangers during formal programs and playlot areas. Staff is encouraging self-directed groups to utilize Palisades Park as a resource. Currently a variety of these groups meet on a regular basis to participate in outdoor activities. Contract services classes for adults and children have increased participation in programs. - 10 - The annual Santa Monica Tennis Open Tournament was expanded last year to include recreational level as well as traditional advanced level events providing substantial increases in participation at Lincoln and other City tennis sites. Over the past year increased emphasis has been given to developing youth tennis programs at Douglas and Ocean View Park sites. This summ.er, through a grant from U.S.T.A., low cost and free tennis training will be provided at Memorial Park to introduce the sport to low income, minority and at-risk youth and adults. Through increased marketing, traditional events including Concerts in the Park and Art Shows at Lincoln and Palisades Parks have experienced dramatic increases in attendance bringing many new faces from local and surrounding communities to the parks. Increased park ranger visibility gave a renewed sense of security to patrons and vendors. Implementation Beqins: Immediately Annual Cost: 0 o Improve park infrastructures along with improved standards of maintenance of park facilities and land. Ensure that all parks have adequate and well maintained lights and fencinq of playground areas. Status: The Department of Cultural and Recreation Services is concerned with the infrastructure and maintenance of all city parks and medians. Each year funding is provided to renovate existing parks, repair fencing, improve facilities, and improve irrigation and lighting. A breakdown of current funding follows. Implementation Begins: Immediately Capital Cost (currently appropriated): $1,929,220 for upgrades at Palisades Park including drainage, jogging path and irrigation; $ 85,000 for the design renovation at Lincoln Park; $ 550,000 for the interim development of the Deak/Cook site and the design for the park portion of the Pico/Cloverfield site; $ 37,850 for fencing at parks as needed; $ 127,250 repair roofs at various restrooms in parks - 11 - SOCIAL SERVICES o Xaintain current city-funded proqrams (Priority) status: This recommendation is consistent with the city's Community Development (CD) Plan's funding rationale over the past decade. The funding rationale has consistently emphasized providing stable operating support to maintain a broad mix of essential human services, including over one million dollars in funding for homeless assistance programs. However, the City's current difficult fiscal situation has required City staff to alert all City funded non-profits to plan for a 5% reduction in grant funding for FY1992-93. It is very important that this 5% reduction be applied equitably to all city human service grantees, so as to not create a destructive and unnecessarily competitive environment between the service providers who serve children and youth, people with disabilities, seniors, minority populations, housed low income people and homeless people. The final decisions about FY92-93 funding levels for human service grantees, including those homeless assistance grantees, will be made by the City council during the budget review process in May and June. Implementation Beqins: Year 1 Annual Cost: $1,102,710 (currently appropriated) o Move indoors and decentralize Ileal programs, link with social services (priority) status: While the Task Force recommends a variety of enhancements to current policies and programs to distribute food, they and the council prioritized the moving of the FAITH Meals Program to indoor, decentralized sites. This is the model they recommend for all Meals programs in Santa Monica. city staff expects that plans to move the FAITH Meals Program will be completed by the end of April, and anticipates the program will be moved to decentralized, indoors sites with a reservation system by early May. FAITH, local service providers, the Westside Ecumenical Conference, the Westside Shelter and Hunger Coalition and city staff have collaborated to implement this recommendation. There are six major components to the new FAITH Meals Program: (1) indoor relocation at multiple sites; (2) limitations of 50 persons per seating; (3) access to the programs through a reservation system; (4) enhanced - 12 - share resources and information, avoid duplication of efforts, assess gaps in services, and provide needed public education when responding to community calls for assistance. Regular meetings and j oint training will serve to strengthen the work of all teams and provide valuable information to assist city staff in determining the most useful role for a Civilian Assistance Team, also recommended by the Task Force. Implementation Beqins: Year 1 Annual Cost: In-kind o Include AIDS education in all homeless assistance proqrams status: The City has recently begun funding the new Santa Monica based HIV/AIDS Education and Support Project through the Wests ide Ecumenical Conference. ci ty staff will work with staff from the Santa Monica HIV/AIDS Project to develop opportunities for training, distribution of publications and educational materials, and other technical assistance for homeless assistance programs. Implementation Begins: Year 1 Annual Cost: In-kind o Develop Santa Monica west Mental Health Clinic into a model clinic servinq the homeless mentally ill (Priority) status: City staff including the Police Department, local non-profit service providers and advocates, and Los Angeles County Department of Mental Health staff have been meeting regularly with supervisor Ed Edelman over the past several months to identify problems and workable solutions to the continuing inadequacies of the County mental health system. The focus of the recent meetings with supervisor Edelman has been on problem solving about Santa Monica West Mental Health Clinic. City staff will continue to be involved in this process. In addition, staff will schedule individual meetings with Supervisor Edelman's staff, the newly hired Director of the Department of Mental Health and the Director of Santa Monica West to review the recommendations of the Task Force and monitor progress towards mental health system improvements. On the statewide level, staff will work to encourage the City-supported Business Government Council to End Homelessness to increase their focus on advocacy, lobbying and public education about mental health issues and will collaborate with local and statewide coalitions on the May - 14 - linkages to services through referrals and social service staff assistance on site with the Meals program; (5) security; and (6) community participation and acceptance. The proposed newly configured Meals program is planned for three sites: the Salvation Army, Ocean Park community Center (OPCC) and step Up on Second. The salvation Army will host two seatings per evening (50 persons per seating) wi th a reservation system linked to four local service providers. The OPCC Drop In Center will host two seatings per evening (40 persons per seating) with a reservation system linked with the Drop In Center. step Up on Second will sponsor two seatings per evening (35-40 per seating) with a reservation system available for step Up members only. Security plans are designed to meet the physical and programmatic characteristics of each site. staff and volunteers from the Veterans Administration Homeless outreach Team, Santa Monica West Mental Health Clinic, the Los Angeles County Department of Social services and local non-profit service providers will visit FAITH Meals sites to provide referrals and other social service assistance to homeless people receiving meals through the FAITH program. City staff have been, and will continue to work closely with the residents and businesses surrounding these sites. Small program size, the reservation system and good security will ensure the acceptance by the neighbors. Implementation Beqins: Immediately Annual Cost: $ 35,077 plus redeployment of existing park rangers o Create the requlatory process to prohibit larqe onqoinq outdoor distribution of food Status: City staff will further explore how to implement this recommendation in the coming months. Implementation Begins: Immediately Annual Cost: Not applicable o Coordinate all homeless outreach efforts, reqular meetinqs and traininq institute status: City staff will assist with efforts to coordinate existing outreach, medical, psychiatric, park ranger and Police teams who work with homeless people. This coordination will assist the various teams to collaborate , - 13 - "Funding, Fairness and Future" rally related to mental health. Implementation Beqins: Immediately Annual Cost: In-kind o Advocate for the County to develop 10-20 acute psychiatric emerqency beds status: This issue has been identified in the recent meetings convened by Supervisor Edelman on mental health issues. Local hospitals have been considering the possibility of providing some type of acute psychiatric care for indigent people. Further efforts are being explored with the County to develop access to underutilized private hospital beds to help implement this recommendation. Based on the Los Angeles County Department of Mental Health reimbursement rates for acute psychiatric beds in a medical facility, the average daily reimbursement rate for one such hospital bed is $445. This translates into an annual rate of $162,425 for 365 days of care. Therefore, 10-20 of these beds projected at 100% occupancy rate would cost between $1.62 and $3.25 million annually. Clearly, this is not a project that the City would directly fund. This recommendation must involve the resources and support of the County of Los Angeles. Implementation Beqins: Immediately Annual Cost: $1,624,250 - 3,248,500 (based on average County reimbursement rate) o Advocate for the County to develop detoxification beds with medical back up status: As is described above regarding hospital psychiatric beds, medically supervised detox beds are quite expensive. According to the County, medical model detox beds are estimated to cost an average of $260 per day. This translates into an annual rate of $92,900 for 365 days of care. Therefore, 8-10 of these medically supervised detox beds proj ected at 100% occupancy rate would cost between $759,200 and $949,000 annually. 8-10 drug However, social model rehabilitation programs, which rely on the intervention and support from recovering addicts and paraprofessionals rather than an emphasis on medical supervision, are estimated to cost an average of $50 per - 15 - day. This translates into an annual rate of $18,250 for 365 days of care. Therefore, 8-10 social rehabilitation model beds projected at 100% occupancy will cost between $146,000 and $182,500 annually. This recommendation must involve the resources and support of the County of Los Angeles. Implementation Begins: Year 1 Annual Cost: $759,200 - $949,900 for medically supervised beds $146,000 - $182,500 for social model beds o Establish new emphasis on employment by sUDportinq existinq efforts and creatinq a Dew employment center (Priority) status: city staff recommends a multi-year approach to implementing this recommendation. The city staff will research and pursue, if feasible, the use of Job Training Partnership Act (JTPA) funds to support existing employment efforts. In Year 1, the staff will research models, identify agencies interested in participating, develop funding partnerships, seek appropriate grants, and develop program goals and parameters for a new comprehensive employment program. Program start up would be targeted for Year 2. Both the planning, funding and overall commitment to this project will require City, County, private and community partnership. Implementation Beqins: Immediately Annual Cost: $ 25,000 - 50,000 for enhancements to existing programs $250,000 - 285,000 annually for new program $ 60,000 - 90,000 for one-time start up costs o Enhanced efforts to hire homeless people into City workforce status: The City's CUltural and Recreation services (CARS) Department operates a small pilot project- to employ homeless people on beach and park maintenance crews. City staff will be working to improve and enhance this and other similar projects. Implementation Beqins: Immediately Annual Cost: $30,000 currently appropriated - 16 - o Expand availability of Section 8 housinq certificates and coordinate referrals of homeless people to affordable housing Status: Currently homeless or near homeless applicants receive Section 8 residency and Federal needs preferences. City staff estimates that 50 percent (or 90) of all new certificates assistance last year were for individuals also receiving services from homeless service providers. A large percentage of those getting certificates or having priority on the Section 8 waiting list are homeless. In January 1992, HOD awarded the city an additional $177,500 in Section 8 certificates which will provide permanent housing for 24 homeless or near-homeless clients this year. An application for 79 additional certificates was recently submitted to HUD with an award expected in May 1992. Section 8 represents a major resource in meeting the permanent housing needs of the communi ty' s homeless and the infusion of up to 100 new Section 8 subsidies this year is a significant response to the Task Force recommendation. Additional activities that ensure linkages between the section 8 Program and homeless service agencies include a recent proposal to HUD to participate in the Family Self Sufficiency Program which requires participating families be linked to social services. Also, the City has requested permission from HUD to open its Section 8 waiting list solely to Santa Monica residents and homeless persons. This would further ensure that homeless persons will receive priority in obtaining Section 8 assistance. If approved and prior to opening the waiting list in April 1992, the outreach plan will include a significant amount of coordination with homeless agencies. Implementation Beqins: Immediately Annual Cost: $660,000 o Develop emergency rental assistance program and security deposit quarantees status: City staff is currently researching model programs for a limited security deposit program~ In Year 1, staff will assess the feasibility of a pilot project for possible implementation in Year 2. Given dramatic cuts in the state's Homeless Family Assistance Program, a large program does not seem feasible at this time. City staff will continue to research models as well as alternative funding approaches to address this problem. Implementation Beqins: Immediately - 17 - Annual Cost: $ 10,000 - 50,000 SHELTER AND HOUSING o Assess zoning changes needed to facilitate the development of a range of affordable housing (priority) Status: As a result of the February 1992 city council public hearing on the proposed emergency ordinance to implement the zoning-related recommendations of the Santa Monica Task Force on Homelessness, staff has identified a number of alternatives for Council action which may be considered on this matter. Staff recommends that the council give consideration to these alternatives, in addition to the recommendations made in the original report, as it develops direction for the Planning Commission. Please refer to Attachment IV for a list of issues and options on possible zoning changes. Implementation Beqins: Immediately Annual Cost: Not applicable o Assess required resources and status of Upward Bound (24 transitional family units), step Up (36 SRC units), OPCC (55 transitional beds) (Priority) Status: Each proj ect has been assigned to a proj ect manager/analyst in the Community Development Department and discussions have been held with the three identified non-profit developers. In January 1992, a $154,000 predevelopment agreement was executed wi th OPCC pursuant to prior Council approval. In March 1992, step Up received a $950,000 loan commitment from the City's City-wide Housing Acquisition and Rehabilitation Program (CHARP). The Upward Bound Project has been assigned to a Housing Division project manager and will be reviewed for possible funding in FY92-93. At the appropriate times for each project, an interdepartmental ttexpeditefl team will be convened to assist the developers in obtaining all necessary City permits and approvals. Implementation Beqins: Immediately Capital Cost: $11,000,000 o. Assess resources for 20-40 (Priority) emerg-eney shel ter beds - 18 - status: City staff is considering implementing this recommendation through the use of the newly acquired property at 5th and Olympic. This site, currently a trailer park, was purchased using Los Angeles County Transportation Commission funds to expand the bus yards. However, it must be partially utilized for a temporary homeless project within 6 months of relocation of the last tenant, as required by the Rent control Board. It is anticipated that this temporary use would begin in January 1993. options include using seven to ten trailers for emergency shelter for families or constructing some type of temporary structure for a shelter. Any use of the 5th and Olympic site should minimize capital outlay expenses, since use of this site will be temporary. Another alternative under review is to work with local coalitions to encourage the creation of a new West Los Angeles emergency shel ter that is currently under consideration. Furthermore, the County-wide expansion of the Emergency Cold Weather Shelter Program to 90 continuous days in the winter of 1992-93 would significantly increase the resources for emergency shelter on the Wests ide of Los Angeles, including Santa Monica. Implementation Begins: Year 1 capital Cost: $ 20,000 - $150,000 Annual Cost: $ 50,000 - $200,000 o Expand Wests ide Emerqenoy Cold Weather Shelter proqram to 90 continuous days (Priority) status: city staff will work with the Wests ide Shelter and Hunger Coalition, The Business/Government Council To End Homelessness, the City of Los Angeles and Los Angeles County, to expand the Emergency Cold Weather Shelter Program (ECWSP) for 90 continuous days in 1992-1993. This will require that Governor Wilson approve extended use of local armories and that the County Board of Supervisors identify funding to support this effort. A maximum of $60,000 of City funds to help fund one month of shelter for 200 people. This funding would be made available only if a County wide 90-day ECWSP program is enacted. This would ensure that the Wests ide ECWSP would be consistent wi th County standards and not be overwhelmed by program participants from across the County. Implementation Beqins: Year 1 Annual Cost: $ 60,000 maximum - 19 - o Address NIMBY by facilitatinq discussion, mediation between neighbors and shelter/hollsinq developers status: City staff recommends that a project "resource team" including staff of the Neighborhood Support Center, Dispute Resolution Services and city community Development and Land Use and Transportation Management Departments be made available to shelter/housing developers and neighborhood residents. City staff will convene a meeting with this team to develop a range of strategies and options for facilitation with project neighbors. Implementation Beqins: Immediately Annual Cost: In-kind o Reopen 6 transitional housing units (St. Joseph's Next Step) Status: Discussions with st. Joseph center suggest that a feasibility review should occur in Year 1 with the possibility of reopening the program in Year 2. City staff will work with st. Joseph's Center to identify possible sites, including any City sites currently available. Implementation Beqins: Year 1 Annual Cost: $ 60,000 for program operation o Support proiects that provide Sinqle Room Occupancy (SRO'S) status: In addition to the recent City funding commitment of $950,000 to step Up's 36-bed SRO project, $2,165,000 of City housing funds are currently committed to support a 44 unit SRO project planned by Community corporation of Santa Monica (CCSM). city staff has also met with CCSM to review additional projects "in the pipelineu for consideration in Year 1- Two possible SRO sites have been identified, totaling 93 units. CCSM is currently assessing proj ect feasibility and possible funding sources, inclUding Federal HOME and Shelter Plus funds and State California Housing Rehabilitation Program (CaRP) funds. While the currently-funded project is not designed to target homeless persons specifically, the two projects in the "feasibility stageU would require direct homeless agency referrals and case management services. city staff will continue to work with CCSM on project feasibility. - 20 - Total $120,OOOjunit (maximum City subsidy $30,000 $40,OOO/unit). Implementation Begins: Immediately Annual Cost: To be determined based on specific projects o Encouraqe congreqate housinq to be built status: In addition to exploring ways to assist in the reopening of st. Joseph Center's congregate housing project (Next step), City staff will re-examine the feasibility of using a city-owned residential property originally purchased with Community Development Block Grant funds for use as a congregate project. In the past, interested groups felt that the size of the house and Federal funding constraints made a project infeasible. If it appears that using sales proceeds (estimated to be at least $200,000) could better serve to promote such a project elsewhere in Santa Monica), staff recommends using those funds as possible seed money to promote a congregate housing project. Implementation Begins: Immediately Capital Cost: Annual Cost: $10,000 - $150,000 $30,000 - $ 60,000 o Create incentives for builders to set aside a percentaqe of units for homeless people coming out of programs status: In addition to regulatory agreements setting specific parameters for marketing and occupancy of ci ty-funded affordable housing proj ects, developers may consider participation in the Section 8 Program. Since the section 8 priority waiting list is largely homeless households, allowing section 8 certificates to be used results in homeless persons being given a de facto priority for these units. City staff will assess the appropriateness and possible implementation of this approach with non-profit and private developers. Implementation Begins: Year 1 Annual Cost: Would utilize existing Section 8 resources o Ensure that mixed use proiects actually have housinq units when completed - 21 - status: The City has an ongoing monitoring program which requires that each developer~ whether residential or commercial, provides either ~n lieu fees or housing sufficient to fulfill the requirements of the City's inclusionary and office mitigation ordinances. These units or fees must be available at the time of the issuance of the Certificate of Occupancy. Information regarding the tenants is obtained on a yearly basis and reviewed by City Housing staff. The additional onsite inclusionary units which will result from the implementation of Proposition R will significantly increase the City's monitoring responsibility. City staff is currently studying the increased need for oversight and intends to have a full implementation and monitoring program in place within six months. Implementation Begins: Year 1 Annual Cost: Not applicable o Pursue City parkinq lots and city-owned land as suitable sites for use of air riqhts to build affordable housing status: Currently a 77-unit senior housing project is nearing completion on Third street, which utilizes air rights over a City-owned parking lot. In addition, a 44-bed SRa project is planned for another downtown parking lot. City housing staff, as well as non-profit developers, have seen city-owned property as a significant tool in developing cost-effective projects. However, a recent review of remaining ci ty-owned parking lots indicates they will not be a significant resource for future projects given the limited number of surface lots remaining. staff continues to review and assess a number of other city-owned parcels. Implementation Beqins: Immediately Annual Cost: Not applicable o Write Proposition R payment of in-lieu housinq implementation ordinance - to allow fees or construction of off-site status: The implementation program adopted by the City Council in March 1992, represents a significant change in the City's inclusionary housing program. It does not provide for off-site development of the required housing by the developer and significantly increases the requirement for on-site inclusionary housing. Therefore, - 22 - there will be a decrease in the amount of in-lieu fees collected. However, it also permits, for the first time, on-site low-income ownership units which could increase the viability of affordable on-site housing. Any in-lieu fees resulting from Proposition R may be used for a full range of affordable housing including SRO's. Implementation Beqins: Immediately Annual Cost: Not applicable RESOURCES AND FUNDING o Assess city revenues, in the mid-year review process, for funds to implement the Task Force recommendations and for potential use of increased parking fees (Priority) status: In the City'S Mid-Year Budget Review which was approved by the Council on March 3, 1992, the Council approved the allocation of $500,000 from the City'S capital project reserve for necessary one-time capital costs. In addition, approximately $300,000 of FY1991-92 funds originally budgeted but not encumbered for homeless programming has been reserved for ongoing or one-time costs. Therefore, $800,000 is immediately available for one-time costs this fiscal year, with approximately $300,000 for ongoing costs available in subsequent years. City staff is also pursuing the possibility of any additional parking citation revenues. Due to County negotiations and the current fiscal constraints of the Ci ty , this revenue source should not be considered a resource in the short term for implementation of the Task Force recommendations. Implementation Beqins: Immediately Revenues: $500,000 One-time/Capital $300,000 Annually o Maximize funds available from California Housinq Finance Agency and other sources for the development of housinq units Status: All City-supported housing projects utilize a full range of Federal, State and local resources. Currently City funding comprises approximately 30 percent of any given proj ect' s funding with 30 percent from the state Rental Housing Construction Program (RHCP) or the California Housing Rehabilitation Program (CHRP), 30 percent from Federal Low-Income Housing Tax Credits, and - 23 - some private debt. New sources of funding in Year 1 will include a new Federal HOME program entitlement and funds made available through the TORCA Program if the June ballot initiative is approved by Santa Monica voters. Implementation Beqins: Immediately Revenues: HOME - $1,091,000; CDBG - $322,400; CHARP - $525,000; citywide Housing Trust Fund $1,200,000; TORCA - $500,000 o Use Proposition R resources to create shelter/housinq Status: Proposition R in-lieu fee revenues are projected to be approximately $650,000 annually. These funds will be used as a part of the City-wide Housing Trust Fund and may be used for SRO's as well as other affordable housing projects. Implementation Begins: Year 1 Revenues: $650,000 Annually o Pursue qrants and other sources of non-City funding to support Task Porce recommendations (Priority) status: City staff have recently evaluated the feasibility of application for HUD funding through the Shelter Plus Care Program. (For more information, please refer to a city Council Information Item dated March 24, 1992. ) In the coming months, staff will review opportunities for Federal, State and private funding for recommendations presented in the Task Force Report. Implementation Beqins: Immediately Revenues: Dependent on individual funding source and project ADVOCACY AND PARTNERSHIPS o Explore possible litigation Governments (Priority) against state/Pederal status: The preliminary assessment of the City Attorney is that, due to procedural barriers, there is no legal standing to bring litigation against the State or Federal government for abdication of responsibility for homelessness. The City Attorney's Office will provide an initial evaluation of this recommendation in FY1992-93. - 24 - Implementation Begins: Year 1 Annual Cost: In-kind o Coordinate programs and City departments to implement a consistent homeless policy with appropriate accountability for City-funded programs status: This staff report was developed with substantial interdepartmental collaboration and partnership. city staff will continue this interdepartmental coordination as the implementation phase of the Task Force report continues in the coming years. Implementation Begins: Year 1 Annual Cost: In-kind o Explore the feasibility of SCAG developinq a formula for local standards for affordable housinq shelter and related services Status: Currently, SCAG is in the process of revising the Regional Housing Needs Assessment which identifies the number of housing units, including low and moderate income units, for each jurisdiction in the region. Each jurisdiction must develop a Housing Element which contains policies and strategies on how to reach the stated housing goals and must report on progress every five years. city staff will assess the feasibility of working with local jurisdictions and SCAG to also include targets for emergency shelter, transitional housing and SRO's. If feasible, this would have to occur in the first part of Year 1. Implementation Beqins: Year 1 Revenues: Not applicable o Actively promote public education, information communi ty invol vement efforts recommended in - the Force report Status: There has been considerable interest locally and nationally about the Task Force report and community problem solving process. One such example comes from an idea for a collaborative project to share the Task Force report and process with other cities. The End Hunger Network, a media coalition to raise awareness about homelessness, and the u.s. Conference of Mayors is working and Task - 25 - to write up the process and key outcomes of the Task Force and distribute such a summary to local governments across the country. The hope is that Santa Monica's Task Force may serve as a model in community problem solving and planning for cities across the country. Locally, Task Force members have presented the report at several civic, radio, television, social service and business gatherings. During the implementation phase, the Task Force will be evaluating how to continue and expand these presentations so that more people in the community hear about their efforts. In addition to these and other community education activities, the specific Task Force recommendation which would require additional funding is the creation of a Speaker's Bureau. This could be implemented through an existing organizatio~ to provide coordination and direction. If this 1S deemed feasible and funds are available, this would begin in Year 2. Implementation Beqins: Immediately Annual Cost: In-kind and $ 36,000 (Full-time Speaker's Bureau) BUDGETARY IMPACT The proposed implementation steps will require funding from a variety of governmental and private sources. The City's funding contribution involves using a range of its own sources including housing and grant funds, as well as the General Fund. In the Mid-Year Budget Review, approved by the City council an March 3, $500,000 in General Fund was identified as available to assist homeless capital projects and $300,000 is currently appropriated in account #01-200-262-75090-6112-15649 for homeless programs. The specific use of this $800,000 in City General Fund is dependent upon final cost analysis for priority projects and addi tional input from the Task Force on Homelessness. These - 26 - decisions will be made in the next several months and come back to the City Council for approval as appropriate. RECOMMENDATIONS ci ty staff recommends that the City council: ( 1) approve the proposed implementation schedule and steps outlined in this staff report; (2) introduce, for first reading, the proposed ordinance prohibiting encampments, as outlined in Attachment III; and (3) direct the Planning commission to recommend provisions addressing housing facilities for homeless people and other affordable housing issues in an interim ordinance. Prepared By: John Jalili, City Manager Paul Berlant, Director, LUTH James Butts, Chief of Police Barbara Moran, Director, CARS Barbara Stinchfield, Acting Director, coo Julie Rusk, Acting CNS Manager, CDO o. Kenyon Webster, P/Z Manager, LUTH Wendy Bines, Homeless Coordinator, coo Attachments Attachment I Attachment II Attachment III Attachment IV - Cost Estimates for New Initiatives - Implementation Schedule - Encampment Ordinance - Identification of Possible Alternatives to Zoning Ordinance - 27 - ~ I- Q) ZC') W ltI ~a. ~ CJ et l- I- et c::: o '+:l CJ et o .... ~ CJ etu) CI) Q) CI).~ Q).... c: .! CI) .~ en c: ~ E ~ - 0 z ~ ... c::: 0 0- Q) CI) CJ! ~ CO .fE ~ .t; ~w 1-;) CO 0 .~ CJ c: o ~ ell .... c: a:l (I) Q) ~ I- . is CI* i;-;;e;-'" ~c"C., "Wr::IJ o"o::J"" .. ::J c..-o en . ~ DI- E >- Ii ~ CD~'g" ...UCU o ::::iI'" c.. LL.5 en M- m- . , . N ~ ... ill (7) CD ...~m> g,cr-- ~S en _' >oil '!::..; u~ ill 3:! CI r:: .. is '0:; III ::J la or::'" UC~ "C<e Ql .. l;I E ';::::; III W 15 'ii - .. o is. ~ Ia U Co ::J . i: iQ Ia al -> en N en , ~ en en ... 00 "0 00 o ~ 00 .0 ON 00 ... CI)o c ,2 .. l;I "C C al E E o U l:) c::: '5: E u.., la <,CI) (I);~ 0'8 i;c 'la ,... 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C) shortages when drought or natural disaster occurs. (c) ~mergency water shortage conditions within the state of California and within the City of Santa Monica can arise on short notice as a result of drought or natural disaster. As a result, the residents of the city of Santa Monica live under an almost constant threat of water shortage. The enactment of a water reduction plan as an emergency measure is necessary in order to preserve the publ ic peace, health, and safety. (d) An emergency water conservation plan is necessary to minimize the effect of the shortage of water within the City of Santa Monica. Such a plan will significantly reduce the long and short term consumption of water, thereby preserving available water for the future requirements of the City, while minimiz ing the hardship caused to the general public to the greatest extent possible. SECTION 7241. Water conservation Requirements. The following water conservation requirements shall apply to all persons within the city of Santa Monica: - 2 - T""" Q) 0) (t\ 0.. ) t =1 c: c:1 o ... - ta (,) <t In In cD cD c- In ::1 1n"C cD Q) -,r. Q) 0 EU) _ 0 :x:g c.'~ o eel .... Q) ~ (,) Q) o E u.-~ ~-a l/l e CCl- .... CCl (,) 'C o Z CO c m tJ) Q) ~ .... t E E- O u Cl QtD.g ~"jro ~ c ~ eCGi _<(0. ~ 0 ~ ]. '0. <C u o ... lD ... I.J III C OCO <:II C C - 1Il'E :EO ?:~ i.J~ :3i" (.) ... lDQ. ..... - ~ -cO -- i3G5 c: 11) ~ <: o ::l UO I.J ~ t:!~ ~.c. o c: ~-o 'x ~ III C -11) o II) c: III o I/) ~11) to to c:f -at: "- III O.s:;. 8.... ... ~ ee ~:. .D~ .s:;..s:; 11) () ':;10 .DIP ~~ I/) ::J WO CD E III lD (J s; ... (I) III 10 ... (I) c::: CI) "0 Q) ~ 0"':- 0.'- Q)cn ~~ (J I ;00 .rlLO ~s. -0 c:. ~ S c: ~ o "0 .';.: ::>- co ~ "- II) "0 C ~ .... I.J ~ o ~ ~ .... ~ 12 Q) a:~ 1-- _---- ---- 1..----- ------- ~------- ---- - . -. ~. 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I rJ) l E +-' I Uua::O<oSJ:v.l OCl<l:O.co~a:: alCDUUUUCC ... ll'I o (,) ;: Q) c:: s:. - s: SECTION 4. The Mayor shall sign and the City Clerk shall attest to the passage of this Ordinance. The city Clerk shall cause the same to be published once in the official newspaper within 15 days after its adoption. This Ordinance shall become effective after 30 days from its adoption. APPROVED AS TO FORM: ~~.. ROBERT M. MYERS City Attorney L- ~- - o -- - ---.. - 5 -