SR-301-004-02 (12)
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~ounc1l Mtg. 4/26/83
Santa Monica, California
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TO:
Mayor and C1ty Counc11
FROM: City Staff
SUBJECT: Update on local efforts to deal with
the problem of the Homeless and Recommendations
to Communicate Concerns to County Board of
Supervisors
INTRODUCTION
This staff report outlines a var1ety of local efforts which have
been initlated over the past 6 months to deal with the homeless
population in Santa Monica and Los Angeles County and recommends
that the C1ty Council approach the County Board of Supervisors
for help in dealing with the problem.
BACKGROUND
On September 14, 1982 a representative of Salnt Monica's PTA
spoke before the Councll and described problems which that school
faced 1n dealing with the homeless populatlon in Lincoln Park. A
meetlng was held between representatlves of the Santa Monica
Police Department and Sa1nt Monica's PTA in which a useful
exchange of information occurred regarding Police Department
policies, and procedures 10 dealing with the homeless. Shortly
thereafter a management team of City staff was established to
facilitate City review of the problem and communicat1on with
concerned citizens groups. Represented on the management team
are the City Manager's Office, Community and Neighborhood
Services,
Library,
and Department of
Police
Department,
Recreation and Parks.
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The four library facilities have experlenced a marked increase ln
the number of homeless, as well as emotionally disturbed persons
(who are not necessarily homeless), who spend a great deal of
time in the library. Those who are assumed to be homeless,
because they appear to have all thelr possessions with them,
sometlmes stay in the library from opening to closing and have to
be asked to leave. Some attempt to bathe and wash their clothes
in the washrooms and sleep at the tables. Some have been
observed sleeping in the bushes or in the areas adJacent to the
library. It is estlmated that the numbers of these people have
tripled at all library facilitles durlng the past three years.
Over the past six months a number of lmportant efforts have been
initlated 1n the community to deal with the homeless and problems
which are created by thelr presence.
Westside Shelter Coalition: On January 13 a successful day-long
conference was held by the Westside Shelter Coalltion to bring
community residents, churches,
social service agencles together
bUSlness representatives and
to discuss a wide range of
issues including emergency services, law enforcement, legal
rights, community education, health, mental health and
employment. Over 100 people participated and many became
permanent members of the shelter coallt1on WhlCh aims to provide
a community focus for dealing with the problem of the homeless.
Sunlight
approval
current
MisSlon: Recently Sunlight Mission sought and gained
to add facilities for 24 beds for single women to the1r
capacity of 80 beds. Sunlight M1ssion seeks to offer
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refuge to the homeless and involve them 1n rel1g1ous activities.
In recent months Sunlight Miss10n has reported turnlng away up to
30 - 40 people a nlght who come seeking shelter. In the past the
Miss10n served primarily out-of-towners. Currently, 60% of the1r
clients come from the immediate area, vict1ms of Joblessness and
other economlC stress.
~ew Shelter Proposed: The City has received a proposal to fund
new services for the homeless which is currently under review by
City staff. The proposal reflects cooperatlon between church,
social service agencies and the business community 1n
establishment of n1ght-time only shelter for 40 homeless men and
a day center fac1l1ty for the homeless to be available in a
downtown church. Experience with such programs nationwide
suggests that the creation of small facilities, rather than large
warehouse type shelters, can do the most 1n offering shelter
services as well as rehabilitatlon counselling.
County Efforts: The County Board of Supervisors has recognized
the scope of the problem of homelessness in Los Angeles County
and 1S striving to open four shelter facilities in communities
across the County. As conceived the services will depend heavily
on volunteer local help from churches and businesses. No shelter
space has to date been located on the Westslde.
Federal
Jobs
Bill:
$100 million will be made available
nationwide through the Federal Jobs Bill for emergency food and
shelter. Approximately $4.6 milllon will be available to the
state and an additional amount to Un1ted Way and representatives
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,/
of estab11shed charitable organizations for distribution to
support emergency serV1ces.
Staff is currently exploring the
availability of these funds for local providers.
RECOMMENDATIONS
Staff recommends that the C1ty Council:
1. communicate its support of the County Board of Supervisors'
commitment to the provision of shelter services as an
important step 1n the direct10n of shar1ng the responsibility
which local cities face 1n dealing with the problem; and
2. if no shelter space on the westside is located by the County,
request the Board of Supervisors to make funds available to
local shelter service providers who are turning to the City
for financial support.
PREPARED BY: Vivian Rothstein
Commun1ty Liaison
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council Meeting: 12/10/91
CDD:CNS:JR:tfh2
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Santa Monica, California
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Transmittal of the Report Entitled The Santa Monica
Task Force on Homelessness: A Call to Action and
Recommendation to Hold Public Hearing.
INTRODUCTION
This staff report transmits The Santa Monica Task Force on
Hornelessness: A Call To Action, which is the final report of the
city Council-appointed Task Force on Homelessness, and recommends
that the Clty Council hold a publlC hearing on December 10th on
the Report.
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 come up with a balanced approach consldering the
need for assistance and services for homeless people, public
safety for all people In Santa Monlca, and advocacy to urge the
County, State and Federal governments to solve this growing
cr1.sis.
Specifically, the Task Force was asked to develop
init1.at1.ves to achleve the follow1.ng goals:
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o Increased public safety;
o
Reduction ~n the numbers of homeless
public spaces (including parks and the
etc. ) ;
peopl e in
downtown,
o Enhanced homeless serv~ces and houslng to fill
current gaps;
o strengthening of coordination between housing and
human services;
o Increased advocacy efforts targeted to state and
federal governments for policy changes and
lncreased funding related to homelessness (lack of
affordable housing, mental health services, etc.);
and
o Definitlon and development of regional planning
strategies to ~ncrease coordination and create
partnerships between local government, non-
profits, buslness, religlous, county/state/
federal governments.
The members of the Task Force
represent 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 general concern and experience
with issues related to homelessness.
The City Councll asked that the Task Force complete its work by
the end of 1991.
DISCUSSION
The attached Report represents the flnal recommendations for
policy and program inl.tiatlves as approved by the entire Task
Force. The city staff will submit a follow up staff report for
Counell action on December 17th.
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BUDGETARY IMPACT
There is no addltional flscal lmpact at this time.
RECOMMENDATIONS
city staff recommends that the city council accept The Santa
Monica Task Force on Homelessness: A Call To Action and hold a
PUblic Hearing on the report in preparation of final Council
review on December 17th.
Prepared By: Julie Rusk, Human Services Coordlnator
Debby Maddis, Senlor Administrative Analyst
Department of Community Development
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The Santa Monica Task Force on
Homelessness:
A Call to Action
DeceDlber 1991
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City of Santa Monica
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The Santa Monica Task Force on
Homelessness:
A Call to Action
December 1991
City of Santa Monica
Community Development Department
Community and Neighborhood Services Division
1685 Main Street. Room 212
Santa Monica, CA 90401
(310) 458-8701
Task Force Members
Dan Kingsley, Co-Chair
Rhonda Meister. Co-Charr
Polly Benson-Brown
Conway Collis
Daphne Dennis
Sharon Gilpin
Rabbi Mel Gottlieb
Chris Jackson
Paul Koegel
Peter Lewi
WIlham Mortensen
VIvian RothsteIn
Jeanne Segal
Rev. Donald Shelby
Madeleine Stoner
Derrell Tidwell
Mona Lisa Williams
Michele Wittig
ftfFli14Sl1tion
Maguire Thomas Partners, Vice President
St. Joseph Center. Executive DIrector
Santa Monica Resident
Santa Monica Resident; California Recycling
Company. President
Santa Monica Resident; City of West Hollywood,
Social Services. Program Specialist
Santa Monica Resident; Standard
Commumcations; City Planning Commissioner
Congo Kehillat Maarav - The Westside
Congregation, Rabbi
Santa Monica Resident
The Rand Corporation. Research
Anthropologist
Santa Monica Resident; LeWl/ Cetta Pa1'l.l).ership
First Federal Bank of c~ lifomia. Chief
Executive Officer
Santa Monica Resident; Ocean Park
Community Center, Executive Director
Santa Monica ResIdent; Psychologist and Author
Santa Monica Resident; First United Methodist
Church, Senior Minister
Santa Monica Resident; USC School of Social
Work, Associate Professor
St. John's Hospital's Outreach Project to the
Homeless Mentally Ill, Manager
Santa Monica Resident; Santa Momca Child
Care Task Force. Chair
Santa Monica Resident; SHWASHLOCK
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The Task Force would like to acknowledge and thank the hundreds of people
who live and work in Santa Monica who have provided valuable input to this
process.
Citv Sta1f
Juhe Rusk
Debby Maddis
Susan Lai
Communltv Develo~ment Deuariliient
Human Semces Coordinator
Senior Administrative Analyst
Staff AsSIStant
The Task Force also thanks the other CIty Departments and City staff members
who provided important Infor'rnatlOn and comments during the Task Force
deliberations.
Joan Goldsmith proVlded consultation and facilitation which was essential in
helping the Task Force deliberate and complete this Report.
l'ABLE OF CONTENTS
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EXECUTIVE SUMMARY
Task Force Mandate . . 1
A National Crisis: Managing on a Local Level 1
Introduction and OvelVlew of Recommendations . 2
PUBLIC }IE~TH AND SAFETY . . . . . . . 9
Perceived Threats to Personal Safety in Public. .. .. 1 0
Violations of Laws-ViOlent Cnmes. Illegal Sale or Use of Drugs.
Aggressive or Intrusive Panhandling. Public Dnnking and
Drunkenness . 11
Trespassing on Private Property 14
Lodging in Public Places . . . . .. .. 15
Public Health and Safety Program Recommendations 16
Altemauves-to-Panhandling-Giving Project . 18
Altemative Sentencmg Program 20
SOCIAL SERVICES . 24
MealProwmns 26
Day Supportive Services 28
Mental Health Services 30
Health Services . 33
Case Management ServIces 35
Job Training and Employment Services . 37
Homeless Prevention 39
SHELTER AND HOUSING . 40
Emergency Cold Weather Shelter . 43
Basic Emergency /CnslS Shelter . 45
Program-Based TranSItional Housing 47
Permanent Housing. 49
Planning and Zoning 52
RESOURCES AND FUNDING . 55
ADVOCACY AND PARTNERSlw'S 57
Advocacy: A PolIucal Action Plan 58
Program DeSIgn. Coordination and Evaluauon . 62
Public Education/Community Involvement . . 64
Community PartJ.cipation in Siting Housing and Services 66
ENDNOTES AND REFERENCES 68
APPENDICES
AppendIX A: Task Force Membership, Mission and Goals
Staff Report CreatIng the Task Force on Homelessness
Appendix B: Building Community Consensus
Description of Task Force Process
Summary of PublIc Comments
Minutes from Public Heanng (September 23. 1991)
AppendIX C: Charts and Tables
Overview of Homeless Related Services
Overview of EXisting Westside Shelter and Housmg Projects
Proposed Shelter and HousIng Projects
E~CUTIVE SUMMARY
TASK FORCE MANDATE
[n March of 1991. the Santa Monica City Council appointed a citizen's Task
Force on Homelessness. The Task Force was given the mandate to
formulate recommendations on immediate and long-term action for the City
to better respond to the growing crisis of homelessness in Santa Monica.
The Task Force was asked to come up with a balanced approach which
considers 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 City Council-
approved staff report detailing the Task Force membership, mission and
goals is included as Appendix A of this Report.
A NATIONAL CRISIS: MANAGING ON A LOCAL LEVEL
Homelessness is a national tragedy which requires national solutions. Cities
across the United States are increasingly impacted by the magnitude of this
crisis. A 3D-City survey by the U.S. Conference of Mayors (1990) indicated
that every respondmg City except one expected the demand for emergency
food and shelter for homeless people to increase during the next year.l
It is difficult for a small municipal government in a major metropolitan
region to Implement adequate local solutions to end homelessness. Here in
Santa Monica and elsewhere m the United States, communities must call for
major structural, policy and funding changes on a national level. The City
must advocate for the County, State and Federal governments to create the
policies and funding required to end homelessness in the United States.
However, it is equally important that municipalities, such as Santa Monica,
assist individual homeless people and play an active role in locally managing
this crisis. The City of Santa Monica has done more than most communities
to help the people that society would like to forget. However, the City's lack
of a comprehensive, coordinated and proactive policy on homelessness has
played a role in the present chaotic policy enVIronment.
The number of homeless people in Santa Monica is estimated to be 1,000-
1,500 on a given night and 3,000-5,000, including persons in shelters and
on the streets, over the course of a year. The number of people requiring
housing and services is greater than the community's resources to assist
them. It must be recognized that there are physical and financial limits to
the number of homeless people that the City of Santa Monica can shelter or
serve. Furthermore. Santa Monica is but one municipality in a large
metropolitan area. Consequently, the City is very dependent upon other
governmental agencies and the cooperation of surrounding cities for a
regional solution. Homelessness has no geographic boundaries.
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Therefore, Santa Monica should not and cannot shoulder the burden for
exclusively fundIng the extensive array of services and public safety efforts
proposed in thIS Report. Rather. the City should take a leadershIp role in
advocating for all govemment entities to take on theIr farr share. While the
City of Santa Monica must continue to assist in the creation of needed
programs and provide funding to support community-based services, it
should not attempt to re-create or establish services such as the health or
mental health systems whIch are clearly the mandate of the Federal, State
and County governments.
INTRODVCTION AND OVERVIEW OF RECOMMENDATIONS
As in the community. the Task Force membership represents a diversity of
opinions on the issue of homelessness. \Vhile members of the Task Force
may have disagreed WIth one another and with some of the specific
recommendatIons contained In thIS Report. the membership as a whole
reached consensus on the overall package of recommendatIons. This was a
demonstration of respect for each other's views and a commitment to the
consensus building process. The Task Force hopes that the community will
also appreciate and respect the diverse perspectives held by people
throughout Santa Monica and that the process of the Task Force will serve
as a model for the community. Further discussion of the Task Force process
and public input is included as Appendix B of this Report.
The goal of the Task Force has been to balance the legitimate needs and
concems of all people in thIS City regardless of age. health. social or
economic status In the community. Consequently. this Report presents a
comprehensive. cohesive package of proposals to protect the health and
safety of the resIdents of Santa Moruca while setting a standard of concern
and assistance for as many homeless people as can be realistically helped by
a municipality of 90.000 people. In so dOIng. we believe that Santa Monica
will also provide an example for other cities and levels of government to
build upon.
The Task Force recommendations fall into five interdependent areas
includIng:
· Public Health and Safety;
· Social Services;
· Shelter and Housing;
· Resources and Funding: and
· Advocacy and Partnerships.
The highlights from each of these fIve sections are summarized in the
follOwing pages. The Executive Summary must be Viewed in the context of
the full Report. Please refer to the complete sections of the Report for
in-depth dIScussion. further detail and additional recommendations.
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The Task Force expects that when fully implemented. the balanced and
interrelated package of recommendatIons contained in this Report will help
to reduce the overall number of homeless people in Santa Monica. However.
successfullmplementabon wlll not elIminate homelessness in Santa Monica.
Given that the City Council charge to the Task Force was to fOl'lliulate policy
and program recommendatIons. the Task Force would like the City to
develop an Implementation plan Including a cost analysis within 90 days.
Furthermore. the Task Force should be reconvened at 3-month intervals
during the first year of implementation to review and evaluate the progress
toward the solutions set forth in this Report.
PubUc Health and Safetv
The specific recommendations of the Public Health and Safety section must
be considered in a context which stresses the importance of Santa Monica
settmg clear standards for behaVior in public. along with a visible presence
of people in the community to uphold those standards (police. park rangers.
outreach teams. neighborhood watch groups) and consistent enforcement
and prosecution of laws. Serious cnmes warrant maximum Police. City
Attomey. District Attorney and Court attention. resources and action.
The recommendations outlined In this section attempt to promote
constructive solutions to specific problem behaviors rather than target a
class or group of people. Clearly. being homeless is not a crime. Respectful
and humane treatment of others must be a comerstone of the standards for
public behavior. This is relevant to all-residents. homeless people.
business people. tourists. police. etc.
Furthermore. the Task Force has detennlned that there are serious public
health and safety issues in the City of Santa Monica. Pubhc testimony and
written communIcations to the Task Force corroborates this concern. Many
in the community feel the need for the City of Santa Monica to take bold and
dramatic action to restore feelings of safety. increase accessibility and meet
basic health standards in public places. particularly in the City parks. This
need to reclaim and control parks and public spaces is particularly
important for children. familIes. seniors and women. who may feel the most
vulnerable and at risk for crime and therefore may feel unable to use the
parks and streets freely.
The following is a summary of key Task Force recommendations relating to
Public Health and Safety.a
1. Citizens should be encouraged to differentiate between perceived and
actual threats to their safety. Only actual threats should be subject to
criminal penalties.
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2. Santa Monica should implement a policy of zero tolerance toward:
· Violent crimes:
· Sale or use of illegal drugs:
· AggressIve or intruSIve panhandling: and
· Public drInking and drunkenness.
3. Increased enforcement and encouragement of citizen reporting of
trespassing on private property.
4. With regard to lodging and sleeping in parks and other public places,
the Task Force recommends police enforcement of the laws necessary
to protect public health and safety, while focusing on the enforcement
of those laws necessary to crack down on Violent crime, illegal sale or
use of drugs, aggressive panhandling, public drunkenness and public
health violations. The Task Force also recommends the adoption of an
ordinance prohibiting encampments in publiC places.
5. The Task Force recommends the expansion of alternative sentencing
programs. Alternative sentencing should include community service
and public works programs we well as drug and alcohol treatment
programs.
6. A Civilian Assistance Team using a social service approach should be
implemented to enhance ex1Stlng outreach efforts and provide a cost
effective means to transport publicly intoxicated people to
detoxification facilities and other services.
7. Ensure that all public restrooms including showers are properly
maintained, cleaned. secure. available. accessible and have clear
sIgnage.
8. Enhance park infrastructures. including lighting. maIntenance and
facUity improvements. In order to increase the general public's use of
parks. develop additional visible recreation activities for all parks.
Social Services
For more than a decade. the City of Santa Maruca has assisted in funding a
variety of social semce agencies whIch comprise a network of basic
emergency services to poor and homeless individuals. The main focus of
these services has been to provide for the most basic human needs such as
food. clothing. outreach. day services for mentally ill. government benefits
assistance. health services and basic emergency shelter. (Appendix C
includes a chart of social services for Santa Monica homeless people.) While
the current network of services provides an impressive array of emergency
services, there is a severe shortage of programmIng that addresses
rehabIlitation and stabilization-Including placements in petillanent
housing. The Task Force believes that large emergency programs not
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strongly linked to necessary support services will not provide permanent
solutions. nor reduce the overall number of homeless people in Santa
Monica. The priority target populations are the homeless mentally ill.
homeless adults and homeless families.
The following is a summary of recommended Social Service initiatives.
1. Maintain current City-funded services.
2. Place a new emphasis on employment programs, including a proposed
employment center.
3. Link all meal programs to services, move them indoors, limit size to
50 persons per seating or less. begIn a reservation system and
establish necessary regulations to prohibit ongoing outdoor food
distribution.
4. Expand current day center availability to 7 days per week.
5. Expand case management for homeless prevention and "after care"
when people are housed.
6. Advocate for the improvement of Los Angeles County health and
mental health services to homeless persons in Santa Monica. This
includes full implementation of County plans to ensure that Santa
Monica West Is a functioning model mental health clinic with a
mandate to serve homeless persons in greater numbers than currently
served.
7. Develop a comprehensive, coordinated plan for homeless services
which includes training and joint planning between area agencies
which serve the homeless and various City departments and the
School Distnct.
8. Design City-funded social service programs should be designed so that,
to the extent an individual is mentally and physically capable of doing
so, they participate in a plan of rehabilitation to include: employment.
if jobs or job traimng programs are available; the utilization of available
services, including, where indicated. mental health, drug or alcohol
rehabilitation programs; and responsibiUty for the maintenance and/or
operation of service facilities.
Shelter and HousinS!
Housing is a vital part of the comprehensive program addressing the
permanent needs of homeless people. Housing the homeless is our goal.
While lack of housing IS a problem that requires Federal and State
intervention, there is much that the City of Santa Monica can do to develop
very low cost and affordable housing in our community.
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The array of newly proposed housing projects would reflect the same
balance of populations as the continuum of seIVlces In Santa Monica. In
desIgning this continuum we want to avoid situations where people receive
shelter and/or housing support but are forced to return to the streets
because they are not able to live independently.
Housing development requires several years and three specific projects have
already begun to secure funding. Therefore. the Task Force recommends
the following immediate priorities and urges the CIty'S full cooperation.
1. 24 transitional housing units for families (First United Methodist
Church) for 6- 12 months. requiring tenant income and rent payment.
2. 36 petlnanent SRO (single room occupancy) units for mentally ill
adults (Step Up on Second). requinng tenant income and rent
payment.
3. 55 transibonal beds for adult men and women (Ocean Park Community
Center). requiring some income and mandatory savings toward
independent rentals.
4. To encourage increased development of small shelter and housing
projects. amend current zoning regulations which slow down or
prohibit the development of new shelter and housing for special needs
populatIons.
The following outlines the other proposed projects included in this Report.
1. Approximately 150 cold weather emergency beds on the Westside
coordinated with the CIty and County of Los Angeles for a continuous
gO-day period annually.
2. 20-40 short-term emergency shelter beds.
3. One or two 50-55 bed transitional or permanent housing facilities
(SRO. congregate, douuitory or other shared units with clear program
expectations of clients).
4. 8-10 short-term emergency detoxification beds (with medical back-
up) for substance abusers. prior to entry into a recovery program.
5. 10-20 short-teul! emergency beds for the homeless mentally ill who
are in CriSiS.
6. 6 transitional housing units/beds to be reinstated at St. Joseph
Center's Next Step Program.
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Summary of Maximum Number of Recommended Beds and Units
Recommended Westside Emergency Cold Weather
Shelter Program - expansIon from current 60 continuous
days to 90 continuous days (annually. during cold
weather months only): 150 beds
Recommended Shelter and TransitIonal Beds: 131 beds
Recommended Housing Units: 170 umts
Further detail of existIng and recommended shelter and housing is included
in charts provided in AppendIX C of this Report.
Resources and F'ttndim!
The Task Force requests that the City include a cost analysis as part of the
Implementation plan for this Report Within 90 days. Funding sources must
primarily include Federal. State and County governments along with private
sector support. Within that context, the following additional revenues could
be provided by the City.
1. Through an agreement with the County of Los Angeles. utilize revenues
from an increase in parkIng ticket fines, from the current $13.00 to
$23.00 per ticket, a level consistent with surrounding commumties.
2. Maximize funds available from the California Housing Finance Agency
and other sources for the development of housing units.
3. Provide a one time payment 1n the amount of $500.000 from City's
reserve funds or other City resources to be used for capital expenses of
shelter /housing projects.
4. Substanbal resources could be provided for the creation of housing
and shelter through the implementation of the Proposition R
ordinance as recommended in this Report.
5. Other funds and resources targeted to implement such a plan include:
· Land currently owned by the City both within and outside
of its boundaries:
· Funds made available through private lenders for housing;
and
· Public/private partnerships.
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A<lvocacy and Partnerships
The Task Force on Homelessness calls upon:
. The City of Santa Monica: to increase public safety for all, support the
expansion of services and housing. take an aggressive leadership role
in advocacy; and explore the feasibility of initiating appropriate actions
against other jUrisdictions (1.e.. Federal. State and County
govemments) that have failed to meet any legal responsibilities to
address homelessness.
· The C01~nty of Los Angeles: to playa leadership role in developing
partnerships with local cities; implement plans to ensure that health
and mental health services for homeless people are significantly
improved including developing Santa Monica West into a model clinic
serving the homeless mentally 111.
· The State of California: to reinstitute adequate funding for the State
mental health system and become a leader among State governments
to lobby for an end to homelessness nationwide provide a model to
other states.
· The Federal government: to lead the effort in ending homelessness in
America; put housing policy development and funding of low-cost
hOUSing and employment programs high on the nation's agenda.
· The homeless people in Santa Monica: to utilize the network of
services to achieve self-sufficiency; become active participants in the
provision of services; follow a code of behavior which promotes
community goodwill and respects pubhc and private property.
· The business community: to become a lobbying force on homeless
Issues in Sacramento (e.g.. employment training opportunities, health
and mental health and housing); provide financial support. training
and employment opportunities to local initiatives.
· The religious community: to be an outspoken force to provide the
moral and religious imperative for the public to act now to end
homelessness.
· The general comm:l!n1ty in Santa Monica: to lobby local. State and
national legislators to end homelessness nationwide; build local and
regional coalitions; get involved with local efforts by volunteering and
providing necessary resources to assist homeless people.
· The surrounding communities: to make a contribution to ending
homelessness by providIng a fair share of seI"Vlces, shelter and low-
cost housing; develop partnerships with local governments to join in
the advocacy efforts.
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PUBLIC HEALTH AND SAFETY
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PUBLIC HEALTH AND SAFETY
OVERVIEW
The specIfic recommendatIons of the Public Health and Safety sectlon must
be consIdered in a context which stresses the importance of Santa Monica
setting clear standards and boundanes for behaVIor in pubhc. along with a
visible presence of people in the community to uphold those standards
(police. park rangers, outreach teams, neighborhood watch groups) and
consistent enforcement and prosecution of laws. Serious crimes warrant
maximum PolIce, City Attorney. District Attorney and Court attention.
resources and action.
The recommendations outhned in this section promote constructive
solutions to specific problem behaviors rather than target a class or group of
people. Clearly, being homeless is not a cnme. Respectful and humane
treatment of others must be a cornerstone of the standards for public
behavior ThIs IS relevant to us all-residents. homeless people, bUSIness
people, tounsts and pobce.
Many in the community feel the need for the City of Santa Monica to take
bold and dramatic action to restore feelings of safety, increase accessibility
and meet basic health standards in pubhc places. particularly in the City
parks. This need to reclaim and control parks and public spaces is
particularly important for children. families. seniors and women, who may
feel the most vulnerable and at risk for crime and therefore may feel unable
to use the parks and streets freely.
Santa Monica must develop community acceptance strategies so that law
abidIng people-homeless and housed-can co-exist in public places.
Homeless people will continue to live in Santa Monica until national
solutIOns are implemented. We affirm the diversity of people in Santa
Monica seeking to make Santa MonIca a community where people feel safe
to interact with others who differ in age. race, lifestyle. appearance and
socio-economlC class.
Police. park rangers, HELP Team. Civilian Assistance Team. homeless
outreach teams, psychIatric mobIle response emergency team,
neighborhood watch groups, merchant associations, and indIvidual homeless
people and residents, MUST all work together to make Santa MonIca a
community whIch looks out for the safety. security and well being of ALL
people who lIve and work here. CIty. County and community efforts must be
well managed and coordInated.
9
INITIATIVE:
PERCEIVED THREATS TO PERSONAL SAFE"1'Y IN PUBLIC
PROBLEM
Although people have grown accustomed to the increasing numbers and
visibility of people liVIng on our streets. many people are frightened by
appearance. behavior or stereotypes which they attribute to homeless
people. While it is important to distInguIsh perceived threats from real
threats. it is equally important to acknowledge that many people who live.
visit or work in Santa Monica may feel threatened by homeless people. who
may in fact have no intention of hurtIng them. Public perceptions of threats
to safety by some homeless people may include the following:
· Disheveled and disorderly appearance;
· Threatening and unpredictable behavior by a minority of people
with severe and persistent mental illnesses;
· Unsolicited interactions;
· Non-aggressive panhandling;
· Groups of homeless people congregating; and
· People sleeping in parks and other public spaces.
In addition. homeless people may perceive threats which include the
following:
· Fear of crime:
· Loss of self detel'l'11ination:
· Family break-ups;
· Fear of service delIvery systems: and
· Pressure for confOrmity.
?
VALUES
Although perceIved threats to personal safety are real to the persons holding
the perceptions. the role of the Police Department is to provide a presence
in the community for safety and to respond to actual criminal behavior. Law
enforcement should never be utiliZed to harass or arrest a group or class of
people solely for the way they look or act.
POUCY
PerceIved threats to personal health and safety can most effectively be
handled through public education which helps people to differentiate
between perceived and real threats and to obtain the necessary skills and
infol'l):lation to handle the perceived threats.
10
INITIATIVE:
VIOLATIONS OF LAWS
· Violent Crimes
. mega! Sale or Use of Drugs
· Aggressive or Intrusive Panhan"lInJ
· Publlc Drbtk1ng and Drunkenness
PROBLEM
Concem about and fear of cnme has increased In Santa Monica. The
statistics reported by the Santa Monica Police Department suggest an
increase in the numbers and percentage of crimes committed by "homeless
persons"--defined as "person with unknown address."2 While many
homeless people living in Santa Monica do not commit serious crimes, and
homeless people are themselves vulnerable to being victimized by criminal
behavior, it Is essential that publIc safety be increased for us all.
VALUES
Santa Monica must be a city committed to ensuring maximum public safety
for all people who live. viSIt and work here. This should be reflected in a
zero tolerance for criminal behavior. This message of non-tolerance must be
clearly communicated in words and action throughout Santa Monica.
Standards and expectations for behavior of everyone living. working or
visiting Santa Monica must be established to ensure the highest level of
publIc health and safety.
POllCY
The policy regarding zero tolerance for criminal behavior should be
implemented as follows:
1. Violent crimes
The Police Department. City Attorney. District Attomey and Courts
should prioritize the enforcement and prosecution of violent crimes.
2. Ille{!al sale or use of dru(!s
- -
The use and sale of illegal drugs should not be tolerated in our
community. There have been reports of limited and temporary
success of special drug enforcement efforts by police task forces in
known drug dealing areas such as certain sections of Palisades Park.
The impact of these efforts is to temporarily alleviate the problem in
that area WIth drug actIVIty moving on to some other area of the City
only to return when enforcement diminishes.
The City must give the highest pOSSIble law enforcement and
prosecution priority to an ongoing crackdown on the sale and use of
illegal drugs including the required personnel. money and other
11
resources to elimInate thIS condition. Law enforcement priority
should apply to all high profile. serious crimes. many of which are
drug related. All of the informatIon and testimony which we have
gathered from law enforcement experts consistently suggests that a
concerted. ongoing crackdown on the Illegal sale and use of drugs is.
perhaps. the single most Important step which must be Implemented
toward improving public safety and security in Santa Monica.
3. Mltressive or Intrusive Panhandlin~
~- ~
Panhandling is illegal in the State of California: however. a recent trial
court decision has held that certain forms of panhandling are
protected under the free speech provisions of the United States
Constitution. Reasonable people can and do disagree with regard to
the proper approach as to so-called "non-aggressive" panhandling
covered by the trial court's decision. Some believe that persons in
need should have the right to ask for money in a non-aggressive way
and that a deCIsion of whether or not to give money should be an
individual decision by persons who are approached. Others hold
religious or moral values which lead them to want to give to
panhandlers. Still. others believe that all forms of panhandling.
including non-aggressive panhandling. should be discouraged.
The Task Force agrees that aggressive panhandling IS unacceptable
illegal behaVIor which should be vigorously enforced and prosecuted.
Besides the obvious examples of the use of force or threats, aggressive
panhandlIng includes the following:
· BlockIng passage;
· Persistent request for money;
· Bemg followed by a panhandler:
· PanhandlIng involving trespass onto private property;
· Failure of panhandler to move from private property when
asked:
· Invasion of indIvidual's pnvate boundaries or space: and
· Verbal threats or abuse.
The public should be encouraged to report aggressive panhandling.
even in circumstances where. for whatever reasons. a prosecution may
not follow. This will assist the PolIce Department in monitoring the
locations in the City of persistent aggressive panhandling. in order to
better enforce this law and to educate the surrounding neighbors to
combat this threat. We recommend that the Police Department
advertise a telephone number for the public to report aggressive
panhandling.
There must be full and vigorous prosecution of all aggressive
panhandlIng. It must be communicated to the public that Santa
Monica has zero tolerance for aggressive panhandling.
12
Many people want to assist mdlvidual homeless people. Giving money
to -someone panhandling may be the eaSIest or only way they believe
they can help. Alternatives to dIrectly gIving money to panhandlers
should be created and strongly encouraged. These alternatives include
cards indIcating avaIlable services to gIve to panhandlers in lieu of
money; a voucher program whereby panhandlers could be given
vouchers for food and services Instead of money. This should involve
the creation of such programs as well as public education to encourage
their use. (Please refer to the Alternattves-to-Panhandling-Giving
Project Initiative later In thIS section of the Report.)
4. PublIc Drinkinf! and Drunkenness
Public drInkIng and drunkenness on the part of certain homeless
indiVIduals as well as by people who are not homeless is a type of
behavior that should be discouraged by vigorous law enforcement
efforts and appropnate targeted programs. Such programs Include a
social service Civilian Assistance Team to transport and assist people
to detoxifIcation programs or the PC 100 program, funded by the
County to offer a structured, supervised program for first-time
offenders.
The Task Force recommends that members of the community. police
officers. and other City personnel report to the City and to the State
Department of Alcoholic Beverage Control any violations of law
observed on the part of owners of liquor stores or bars relating to the
prohibition against the sale of liquor to obviously intoxicated persons.
13
INITIATIVE:
TRESPA$SING ON PRIVATE PROPERTY
PROBLEM
Some homeless people trespass on commercial and/or residential private
property for the purpose of loitering. sleeping, eating. urinating or
defecating.
VALUES
Trespassing. where no other crime IS committed. is a matter of pnmary
concern to the owner or legal user of the property where the trespass is
being committed.
POUCY
The public must be infol1ned about trespassing laws so that any property
owner or user will be able to report violations to the Police. Property
owners should be informed that they can give continuing pel'1l11ssion to the
Police Department to enforce trespassing laws on their property.
Enforcement of trespassing laws can Involve a citizen's arrest where no
crime is committed in the presence of a police officer; the person making
the citizen's arrest must be willing to participate in the criminal
prosecution process by providing appropnate evidence of the violation.
When the victim is WIlling to participate in the prosecution process. the
Police Department and City Attomey should proceed in a manner consistent
with the zero tolerance standard.
The Police Department should educate the public about how to file a no
trespassing letter with the Police Department to ensure easier enforcement
of these laws.
Enforce the newly added SectIon 602.1 of the California State Penal Code
which states:
602.1.(a) Any person who intentionally interferes with any
lawful business or occupation earned on by the owner or agent of
a bUSIness establishment open to the public. by obstructing or
intImIdating those attemptIng to carry on business, or their
customers, and who refuses to leave the premises of the
business establishment after being requested to leave by the
owner or the owner's agent. or by a peace officer acting at the
request of the owner or owner's agent, is guilty of a
misdemeanor. punIshable by Imprisonment in a county jail for up
to 90 days, or by a fine of up to four hundred dollars ($400). or
by both that impnsonment and fine.3
14
INITIATIVE:
LODGING IN PUBLIC PLACES
PROBLEM
Under Santa Monica MuniCIpal Code Section 4202A. it is illegal for anyone
to sleep or loiter on any public beach. park or playground between the hours
of midnight and 5 a.m.. unless a permit is obt~Jned from the City. There has
been limited enforcement of this law in recent years. There is no municipal
ordinance prohibiting encampments in public places.
This problem involves a complex set of conflicting interests and policies.
The predonunance of large numbers of homeless people in certain public
places in the City presents both a perceived threat and In many instances a
real threat to other persons desiring to use these public places.
VALUES
Those who argue for limited or non-enforcement of the ordinance
prohIbiting sleeping in the parks, unless the commission of another crime is
involved, do so on the basis that there IS no other place for homeless people
to sleep and, due to overcrowded jails. prosecution is futile because people
convicted of this crime will repeatedly violate the law. Others argue that all
laws should be enforced and that it is unfair for people with homes to be
depnved of the use of public places. Still others have suggested that an
ordinance prohibiting permanent and semi-permanent encampments in
public parks would protect access to park lands for everyone.
POUCY
The Task Force believes that the Santa Monica Police Department should
aggressively enforce the laws and statutes necessary to protect the public
health and safety. The Task Force also expects a concurrent Pollee
Department emphasis on the protection of the civil rights and personal
dignity of all citizens and visitors in the City of Santa Monica.
The Task Force recommends that law enforcement resources in this area
place a priority upon addressing VIolent crimes. the illegal sale or use of
drugs. aggressive panhandling. public drinking and drunkenness, and public
health VIolations.
In additIon, the Task Force further recommends that the Council adopt an
ordinance prohibiting encampments in public places.
15
PUBLIC HEALTH AND SAFETY PROGRAM RECOMMENDATIONS
Overall. shelter. housing and servIces, as dIscussed in other areas of the
report. are needed to minimize the need for homeless persons to sleep in
public places.
1. The Task Force recommends the ongoing full scale enforcement of
high profile crimes. including but not limited to drug enforcement.
Furtherillore. we request that the Police Department provide a report
to the Task Force regarding the additional resources needed to fully
implement this recommendation. The Task Force would like this
report as soon as possible but no later than 90 days.
2. Publicize the phone number to report aggressive panhandling.
3. Develop a Civilian AssIstance Team using a soetal service approach and
staffed by trained paraprofessionals. who will approach intoxicated or
homeless people. offering them transportation to a detoxification
program. a shelter. health or mental health services. This mobile
outreach team could patrol areas of Santa Monica where homeless
people obstruct streets. sidewalks. alleys. residences. parks and
businesses. The Civilian Assistance Team could be a cost effective
alternative to unnecessary use of police resources. It would be
imperative that this new effort be well developed and coordinated
with existing outreach teams. mental health staff. parks rangers and
the Police Department.
4. Plan and implement the Alternatives-to-Panhandling-Giving Project.
an Initiative described later in this section of the Report.
5. Ask the Police Department to distinguish in their statistics between
"address unknown" (current definition for "transient" by the Police
Department) and homeless.
6. Plan and implement the Altemative Sentencing Program. an Initiative
described later in this section of the Report.
7. Ensure that all public restrooms including showers are properly
maintained. cleaned. secure, available. accessible and have clear
signage. Explore the feasibility of opening public restrooms and
showers earlier in the morning (6:00 a.m.l. Once these goals are
accomplished. the City should evaluate the need for additional public
restrooms and report back to the Task Force within one year.
8. Provide some type of storage or lockers to be used by homeless
people.
9. Develop a new ordinance for no encampments.
16
10. In order to attract the general public to City parks and increase park
use. enhance visible recreational activIties at all City parks-
particularly Palisades and Lmcoln Parks. This will create positive and
inviting park uses for the entire commuruty.
11. Improve park infrastructures along with improved standards of
maintenance and upkeep of park facilities and land. Ensure that all
parks have adequate and well maintained lights and fencing of
playground areas.
12. Implement Public Education/Community Involvement InitIative as
described in the Advocacy and Partnerships section of this Report.
17
INITIATIVE:
ALTERNATIVES-TO-PANHANDLING-GIVING PROJECT
PROBLEM
Aggressive panhandling has been sited as a serious threat to public safety.
Furthel'l110re, the tounsm industry and other busmesses have reported a loss
of revenue due to this groWIng problem. Aggressive panhandling has
negatIvely contributed to public opinion of homeless people, giving an
undeserved reputatIon to the maJ ority of homeless persons who are
struggling for survival. Aggressive panhandling is commonly associated with
illegal and unhealthy behavior such as drug and alcohol abuse and other
endangering practices.
VALUES
Assistance to homeless people could be promoted in ways which support
quality of life and maximize the number of persons assisted. Efforts that
promote healthy behavior and reduce cnminal and anti-social practices
should be supported. Donations to the social service agencies serVIng the
homeless can be recommended as an alternative to giving to panhandlers.
We acknowledge however, that many people share religious and moral
beliefs that encourage them to give money to people who ask for it.
POUCY
The practice of aggressive panhandling in this community can be eliminated
through a comprehensive and Widespread community participation effort in
support of healthy behaviors promoted by the homeless service agencies. By
providing an effective alternative to panhandling. the community can
promote the spirit of giVIng via contributions to soclal semce agenCIes
without supporting the anti-social and unhealthy behaviors associated with
aggressive panhandling.
PROGRAM
Establish a communIty-wide campaign for public awareness and giving
through the development of an Altematives-to-Panhandling-Giving Program.
1. Create donation cans for collection of small change to be located at
prominent sites in the downtown area. Money shall be collected on a
weekly basis and distributed among the local homeless service
agenCIes.
2. Develop donation cards in the amounts of 1. 5. 10 and 20 dollars to be
sold at hotels. restaurants, theatres and other participating business
establishments. Informational matenals should explain that donations
will be sold by the various participating vendors and collected on a
regular basis.
18
All donations will then be distributed equally to the various homeless
service agencies. ReSIdents and tourists alike shall be encouraged to
purchase donation cards as an altemative to gtving to panhandlers and
as an effective way to support those agencies that dIrectly help the
homeless.
3. Develop educational/promotIOnal materials to be dIstributed citywide
(posters, donation and mfo1'luation cards listing the agencies aSSIsting
the homeless and ways to help the homeless) with the following
messages:
a Santa Monica cares about people in need.
b. Instead of promoting the negative behaviors and practices of
aggressive panhandlers. give donations to those agencies which
directly provide the necessary support services of food, clothing.
shelter. employment opportunitIes.
c. By working together as a community. we can effectively
eliminate aggressive panhandling through attrition without
burdening our law enforcement resources.
d. Contribute your small change to the donation receptacles and
purchase donation cards (for larger amounts with attached
receipts) at participating establishments.
e. All donations will be collected on a regular basis and monies will
be distributed among the homeless service agencies.
4. Local theatres should be encouraged to develop and show publicAservice announcements promoting the alternatives-ta-panhandling
messages (3a - 3e).
19
INITIATIVE:
ALTERNATIVE SENTENCING PROGRAM
PROBLEM
The criminal justice system will inevitably continue to be deeply involved in
the issue of homelessness for the foreseeable future both in instances where
it should be involved. such as violations of law by homeless individuals. and
in situations where there is currently no other viable alternative.
VALUES
Developing alternative options to jail IS cost effectIve and often more likely
to provide meaningful assistance to mdIVlduals and the community.
POUCY
The Task Force recommends the expansion of alternative sentencing
programs whereby. when appropriate. indIviduals convicted of a crime be
sentenced to alternatives other than jail on the basis that the jails are
overcrowded and cannot accommodate more people and alternatives to jail
are more likely to alleviate the condition which resulted in homelessness
and the commission of a crime. Alternatives to jail primarIly include
community service programs. public works. and diversions to alcohol or
drug treatment programs.
Alternative sentencing programs must have "teeth." This might include
requiring an alternative sentence as a condition of probation so that the
person who refuses to comply with the alternative sentence Will be subject
to incarceration.
Alternative sentencing consisting of community service and public service
would include spending time helping out at community service agencies and
cleaning up the parks and streets. Community service agencies. the City of
Santa Monica. religiOUS institutions and businesses should extend full
cooperatIOn to the courts in connection with the implementation of
alternative sentencing programs.
PROGRAM
The Santa Monica City Attorney presented the Task Force with
recommendations for an Alternative Sentencing Program. The following
recommendations are excerpted components from the City Attorney's
Report which the Task Force recommends.4
1. Screening and Evaluation Element
Not all defendants are well sUited to all programs. Therefore. any
alternative sentencing program Will need a screenIng mechanism.
20
...
The sentencIng court should be able to do an inItial screening.
Thereafter. more particularized screening will be necessary.
In Santa Maria. California, an alternative sentencing model for
substance abuse cases is currently beIng effectively utilized. In that
program, a representative from the treating agency attends court one
day each week and is able to help with screening at the courthouse.
2. Substance Abuse Intervention Element
Some people become homeless because of substance abuse problems.
Many more resort to intoxicants to response to the pain, fear and
humibation of street existence. In either case. no real rehabilitation is
feasible without dealing Wlth the substance abuse problem.
Effective drug intervention involves at least two stages. The first stage
involves detoxification-getting the person sober. The second stage
involves counseling and a range of support and rehabilitation services
so that self esteem can be built and a hfestyle adjusted.
Obviously. our City does not have sufficient funds to spend many
thousands of dollars for each poor person who needs to go through a
detoxification program. There are. however, other models which are
cheaper and which apparently can be effective. The Santa Maria
Municipal Court is operating a drug treatment program which heavily
utilizes acupuncture techniques followed by 12 step programs and
counseling. The municipal court judges there indicate that the
program is effective.
3. Monitored Community Work Element
Anti-social behavior does haruJ. the community. Therefore. productive
work to benefit the community is appropriate as part of an alternabve
sentencing scheme.
The following is a list of some of the types of jobs which would benefit
our community and whIch would be appropriate as part of altemabve
sentencing programs.
a Community Clean-uD
- -
Community clean-up would appear to be a productive activity for
the work element of an alternative sentencing program. It
should be noted that community service is already utilized by the
local courts. However. for the homeless. that service is generally
restricted to workIng for Cal Trans concerning the areas
adjacent to freeways. A supervised program to deal with trash in
the streets and litter in the parks and on the beaches would
21
enhance the quality of life in our community and be consistent
with tasks the homeless might accomplIsh.
b. Graffiti Clean-un
Graffiti is a problem associated with gangs and not with the
homeless. However, the presence of graffiti IS demor~1izing to
our community. Painting out graffiti is a productive actiVity of
which the homeless are generally capable.
c. Lending Staff Support to Charitable and Social Services
Proirams
There are a number of social servIce programs of various types
operating withIn the City. 'Where appropriate. assistance to
those programs would appear to be Within the capabilities of
some homeless defendants.
d. Oth~r Work-related Pro!!rams as Mav be DeteulIined bv a Full-
tIme Citv Staff Person whose Job is to Seek out and- Monitor
Local Communitv Service O~portunitles
In order for community servIce to be a meaningful alternative
sentence. some person or persons will need to monitor
individual progress and seek alternative service opportunities for
qualified candidates.
Clearly. there will be governmental service functions. church-related
service functions and non-profit service functions which Will be
appropriate. There may also be some useful work which can be done
at or near private institutions in the community.
A local community service program will require a local coordinator.
Such a salaried person would seek out appropriate work projects.
That person would also monitor progress within those projects to
deteu.l1ine that the participants fulfill their obligations and iU'e not
exploited. In addItion. the program will require crew leaders to
ensure supervision in the field for certain types of community service
work.
22
4. Progr~m Completion and Transition Element
Presumably, a homeless offender who has begun to seriously deal with
substance abuse and done some productive work for the community
will have Improved hIS or her health and self image. A meaningful
alternative sentencing program must also attempt to intervene in the
cycle of poverty and homelessness itself in order to make any progress
for the defendant and for the community.
The Task Force recommends a program of transition and follow-up with
defendants upon completion of their alternative sentencing to direct them
to agencies and for programs which deal with their individual situations.
23
SOCIAL SERVICES
OVERVIEW
For more than a decade. the CIty of Santa Monica has funded a vanety of
social service agencies which comprise a network of basic emergency
semces to poor and homeless individuals. The main focus of these services
has been to provide for the most basIC human needs such as food. clothIng,
outreach, day services for mentally ill, benefits' advocacy, health seIVIces
and basic, emergency shelter. While the current network of services
provides an impressive array of emergency services. there is a severe
shortage programmIng that addresses rehabIlitation and stabilization-
including placements In permanent housing. The Task Force believes that
large emergency programs not strongly linked to necessary support services
will not provide permanent solutions, nor reduce the overall number of
homeless people in Santa Monica. (Appendix C includes an ovemew of
existing SOCIal services for Santa Monica homeless people.)
Our recommendation is to maintain the current level of funding for basic
emergency services. Enhancement to existing semces and new programs
should provide an emphaSIS on rehabilitation and long-term solutions. This
will enable homeless indiVIduals to become self-sufficient and rejoin the
mainstream of society. These recommendations include:
· A major new emphasis on the development of employment
resources including a proposed employment center for
homeless persons;
· Promoting a "case management" approach for all City-funded
programs WhICh stresses outcomes that help people achieve
their hIghest level of self-sufficiency by helping people to access
benefits, counselmg. health care. employment and other support
services in a coordinated manner; and
· Client Involvement in program operations utilizing peer support,
self-help and self-governIng approaches thus Increasing personal
responsibilIty. empowerment and accountability of program
partiCIpants, as well as encouraging employment opportunities
for homeless and formerly homeless persons in programs and
requIrIng some client volunteer partIcipation in programs
whenever possible.
The priority target populations are homeless mentally ill persons. homeless
adults and homeless familIes.
After much exploration, we advocate a shift in emphasis regardmg meal and
food distribution efforts In Santa Monica consistent with an expanded focus
on rehabIlItation. Meal programs should be smaller. decentralized. located
24
at scattered sites and lInked with social services to provide a linkage
between food and other necessary services. In this way, homeless people in
need of food will have the opportunity to develop supportive relationships
with volunteers and service providers who will work together toward
long-term solutIons. We discourage meal programs which include
anonymous interactIons without efforts to link meal distributions with other
servIces.
25
INITIATIVE:
MEAL PROGRAMS
PROBLEM
The most acute emergency need of homeless persons is for food. Most full-
service programs in the City proVlde either meals or groceries to clients. In
addition. there are a number of churches and temples and other community
groups like FAITH. which have establIshed all-volunteer meal programs. All
of these efforts proVlde a vital serVlce. However. there has been much
controversy over large outdoor meals and food distribution programs. their
impact on the community and increased public health risks. The existing
volunteer-operated meal programs are a good foundation upon which to
build a new approach to meal servIce In the City while taking into account
the above-menuoned concerns.
VALUES
People cannot function well. access programs or seek employment if they do
not eat regularly. Daily food provision is one fundamental service which
must be combined with other services for a permanent solution to
homelessness for individuals.
ThiS effort should reduce public health risks and prOvide a dignifying
environment for the prOVIsion of meals to homeless persons. promote
access to services and reduce the large numbers of homeless persons
congregating in public spaces. which in the opinion of some people.
perceive to be a threat to public health and safety.
POUCY
We recommend that meal programs be small. decentralized. controlled
through a reservation system. located at scattered sites and linked to
supporuve services. We discourage meal programs which are anonymous
and do not seek to connect people with other needed social services.
Because meal programs are often a "pOint of entry" for homeless persons. an
important opportunity is missed if people are not linked to shelter and
other services. Volunteers who want to provide meals should be paired with
local service providers. Meals should be served at the agency sites or at
some other indoor location. The church. synagogue or community
organization can maintam its autonomy. and by working together with a local
service provider. the scope of both programs is broadened. Other linkages
could emerge as well as a result of the pairing for meal program provision.
26
PROGRAM
1. Designate a food and meal dIstribution program coordinator or a
coordinatIng agency to organize all volunteer food efforts and link
them to local servIce providers.
2. Ensure that meals are available 7 days per week.
3. All ongoing outdoor meal programs located in parks and public places
should move to indoor sites.
4. Develop the necessary regulatory procedures to ensure that ongoing
meals programs are prohibIted from operating in parks and other
outdoor public spaces. Create a mechanism for regulating one-time
events.
5. For City-funded or City-supported (including use of City personnel.
security, facilities or other City resources) meal programs must llmit
the number served to 50 people or fewer per seating. Control access
through a reservation system to avoid congregation of large numbers of
people. People who access meal programs should sign in and be
contacted by someone who can provide referrals to other needed
services. These standards should be encouraged for non-City
supported efforts. as well.
6. Develop a simple Infofinabon card with map which refers people to
meals programs. DIstribute the card to:
· All agencies:
· Churches and synagogues:
· Businesses in areas heavily impacted by homeless persons;
· Make available on request to residents; and
· Relevant City staff including park rangers. pollee, etc.
Publicize the information card and encourage community members to
hand out the card instead of money. (See Altematlves-to-Panhandl1ng-
GIving Project Initiative described in the Public Health and Safety
section of this Report.)
7. Support local food bank programs so that both homeless persons and
persons on a low and fIxed Income have access to groceries when they
cannot afford to buy food.
27
INITIATIVE:
PROBLEM
DAY SUPPORTIVE SERVICES
The number of homeless persons continues to grow and the existing
network of services is overburdened by increasing numbers and shrinking
housing, mental health and other social service resources. There is a
shortage of indoor places for homeless people to go during the day. The
majority of shelters are closed during daytime hours and existing day
centers and drop-in centers are small, overcrowded. and lack adequate
facilities to help persons maintain hygIene. rest, offer protection from the
elements, and find assistance In job searching. People who are homeless
need to be contacted sooner by outreach teams, park rangers and other
designated City personnel and hnked to services. There are not enough
employment or day services for people on the streets or in shelters.
VALUES
Day services should offer constructive self-help opportunities to promote
self-sufficiency, self esteem, healthy behavior, hygiene and personal
responsibility. Access to affordable housing. job opportunities. health care
and related supportive services allows people to maintain themselves
independently, thus promoting community stability and productivity.
POUCY
The City should support an expansion of current programs for the homeless
only if they promote efforts toward stabilization and attainment of
permanent housing. Day services and shelter fhousing service should be
linked. Ideally, programs should be small and decentralized, located at
scattered sites throughout the City. Programs should define the values
which guide therr service and a code of behavior for participation. Program
participants should be Involved In a broad range of program operations
includIng, where appropriate, employment opportunities at the agencies.
Programs should begin to shift the focus to more permanent solution
oriented approaches and away from emergency services. Programs which
currently serve people only during day hours Monday through Friday should
expand to include weekend hours and should investigate the possibility of
offering night-time shelter. Programs which offer only night-time shelter
should ensure that participants are Involved in meaningful day activities.
Outreach should be increased and coordinated with park rangers, the police
and all area non-profits whICh work with the homeless.
By and large, the current continuum of services should be maintained and
expanded. Outreach, case management, follow up services, drug and alcohol
servIces. health services. and employment serVIces are all areas which
require either new or expanded programming. The City should advocate to
the appropriate governmental bodies for funding for services targeted to
28
special needs populations. The City should provide only supplemental
funding for servIces such as health and mental health services which are the
County and State's responsibility.
PROGRAM
1. Expand the capability of existing day services so that programs are
open 7 days per week.
2. Ensure the linkage of day services and shelters.
3. City-funded social servIce programs should be designed so that. to the
extent an individual is mentally and physically capable of doing so. they
participate in a plan of rehabilitation to include:
. Employment. if jobs or job training programs are available;
· The ublization of available servIces, including, where
IndIcated. mental health, drug or alcohol rehabilitation
programs; and
· Responsibility for the maintenance or operation of service
facilitIes.
4. Increase outreach to homeless persons by medical. mental health and
SOCIal work professionals and investigate the feasibility of peer
outreach. Coordinate outreach efforts with the police and park
rangers. Institute regular meeting and trainings.
5. Develop an outreach and transportation program which would provide
immediate access to a detoxification facility for public inebriates.
(Please refer to the Public Health and Safety Program
Recommendation regarding creation of a Civilian Assistance Team.)
6. Develop expanded case management or "after care" services for
persons once they have estabhshed themselves in pel'lllanent housing.
These semces should be extended to partiCIpants of the City Housing
Authority's Section 8 Housing Program. many of whom require
ongoing support in the skills of daily living in order to prevent
eviction.
7. Include ATns education in all programs.
8. Support and encourage the collaborative efforts of volunteers working
with homeless service agencies.
29
INITIATIVE:
PROBLEM
MENTAL HEALTH SERVICES
Researchers and service providers currently estimate that 30-35% of the
homeless population in Santa Monica and nationwide suffer from severe and
persistent mental illnesses. 5 Long before the widespread phenomena of
homelessness appeared in the early 1980's, persons with mental illnesses
were a population at risk of becoming homeless due to the failure of the
national policy of deinstltutionalization begInning in the early 1960's.
Community-based facilities were neither planned nor financed to meet the
tremendous need of large numbers of persons leaving State mental hospitals.
Over the last five years, Los Angeles County Department of Mental Health
suffered over a 25% reduction in services which has severely impacted the
local mental health system. Such cutbacks are largely attributed to the low
priOrity of mental health funding on the State level. Given the very recent
shift of responsibility for mental health services from State to County
government (known as "The Realignment Plan"), an atmosphere of
confusion and uncert~inty prevails with regard to the future of mental health
funding and services in Los Angeles County.
Los Angeles County Jail is reportedly the largest mental institution in the
nation. one of the few places offering shelter and minimal treatment to a
population in great need of appropriate treatment services and supportive
housing optIons. The current commitment laws of involuntary
hospitalization have been Ineffective for those persons who are gravely
disabled or pose a danger to oneself or others since few acute care hospital
beds or alternatIve sanctuaries exist.
The homeless mentally ill frequently get stuck in the criminal justice
system. PanhandlIng. public intoxication. being a "public nuisance," and
sleepIng on the streets are examples of citable offenses. In Santa Monica,
the practice has been to replace prosecution of nonviolent offenses with
psychiatric and social service assessment and referral In the jail.
Housing poses additional problems. Board and care homes often screen out
individuals unable to follow their rules. Violence. assault, and rape are
common hazards in voucher hotels. PatIents with dual diagnoses of mental
illness and substance abuse may be excluded from varIOUS shelters for either
of these two diagnoses. even if they are not currently usmg drugs.
The County's approach to services for the homeless mentally ill in the Santa
Monica area is inadequate. Reportedly. only 20-30% of the clients at the
County-operated Santa Monica West Mental Health Clinic are .homeless
people. County cutbacks necessitated the severe cutbacks and periodic
discontinuation of the PMRT (Psychiatric Mobile Response Team}-a critical
service contributIng to the safety of severely ill persons and the community
at-large.
30
We recommend that the CIty of Santa Monica actively educate its citizens
conceming the homeless mentally ill. ResIdents should understand the
current limitations of mental health professIOnals pertainmg to Involuntary
hospitalization laws, the paucity of available hOSpital beds, and unavailable
community-based treatment faCIlItIes. CItizens also would benefit from
understandIng mental illness as "illness," not a volitional choice.
VALUES
Homeless persons with severe and persistent mental illnesses have the nght
to live in dignity with access to treatment services and housing appropriate
to their level of need in the least restrictive settIngs. Yet persons who are
gravely disabled-unable to care for one's basic needs-and/or pose a
danger to oneself or others must receive involuntary hospitalization
according to California law.
POllCY
The City of Santa Monica is not mandated to provide mental health services.
County mental health seI'Vlces must be reorganized and revitalized in order
to address the needs of people in our community. That change combined
with Increased support for the community programs already developed will
begin to address the needs of the homeless mentally ill. The role of the City
should be to supplement funding to support community-based social service
agencies and to advocate for improving the State and County mental health
system.
We applaud the efforts of Los Angeles County Board Supervisor Edelman who
has taken a leadership role in addreSSIng the mental health needs of the
homeless mentally ill on the Westside.
PROGRAM
1. Advocate for County and local hospitals to develop resources to provide
10-20 acute care psychiatric beds and altemative crisis residential
treatment beds targeted to homeless persons who are gravely disabled
and a risk to self or others. Encourage the County to explore use of
available, underutilized beds in private hospitals to meet the great
demand for more mental health beds.
2. Urge the County to develop and implement a community mental
health plan which includes as a key component developing Santa
Monica West into a model alternative treatment facility to serve the
homeless mentally ill. A range of services should include:
a Reinstate a fully staffed psychiatric mobile response team to
handle crises and emergencies involving persons who are
mentally ill. Inc1udmg a safe sanctuary to bring people who fit
31
the criteria for involuntary hospitalization. yet may be refused a
hospital bed;
b. Development of a fully staffed. funCtioning clinic prOViding the
necessary supports to front-line paraprofesslOnal staff of local
non-profit agenCIes. Santa Monica Police Department. park
rangers and the Santa Monica Housing Authonty.
c. Comprehensive case management. including medication
monitoring and supervision. money management with
representative payee capability. independent living skills
training. benefits advocacy and housing placement and retention
assistance;
d. Changes In existing County policies to expand services to the
multI-dIagnosed population (l.e.. persons WIth a primary mental
health diagnosis and secondary substance abuse diagnosis) in
collaboration with agenCIes whIch provide drug and alcohol
servIces;
e. Alternative treatment approaches in place of traditional
outpatIent services specifically appropriate for mentally ill
persons who are homeless such as case management, peer
support groups, social rehabilitation and other client-driven
service models;
f. Support the development of vocational programs in collaboration
with State Department of Rehabilitation in order to provide job
opportunities for the homeless mentally ill; and
2. Supplement fundIng for current day centers servlng the homeless
mentally ill so that day center operations can be open 7 days per week.
3. Increase mental health team street outreach.
4. Homeless prevention-Increase the available case management and
money management services for persons after they have achieved
permanent housing.
32
INITIATIVE:
PROBLEM
HEALTH SERVICES
There is a serious lack of medIcal care for homeless people on the Westside.
The most common health problems sIted by health care professional include
skin disorders, gastrointestinal and upper respiratory infections, dental
problems. drug and alcohol problems. urinary tract and pulmonary
infections. Homeless people are a particularly high risk population for HIV
infection. Tuberculosis and other communicable diseases also pose a threat.
Homeless children living in missions, shelters and on the street are
underimmunized and are at great risk for developing chronic illnesses due
to untreated health problems.
An overwhelming demand exists for primary care services. Too often the
only medical care which homeless persons access is also the most expensive
and least appropriate to the need-the emergency rooms of our local
hospitals. Physical examinatIons which are required for homeless
individuals to obtaln welfare benefits are no longer offered at the County's
Burke Health Center in Santa Monica. Homeless people must travel to
downtown Los Angeles for this seIVlce. Venice Family Clinic. the only local
non-profit health clinic providing health semces to homeless people, is
overburdened. reporting 9.000 homeless patient visits in the past year.
Persons sufferIng from drug and alcohol problems have few treatment
options. In particular. the prevalence of crack cocaine poses many obstacles
for effective treatment and recovery. The L.A. Homeless Health Care Project
reports that only 34 subsidized drug-detmaficatton beds are available
Countywide and only 5.800 total drug treatment slots (including inpatient
and outpatient) for an estimated population of 100.000 low income persons
requiring treatment. 6
VALUES
All people, regardless of social or financial status. must have access to
adequate health care.
pOUCY
The City of Santa MonICa is not mandated to provide health services, and
therefore, must advocate for the County to prOVIde the necessary health
serv1ces on the Westside. Advocacy efforts should focus on developing a
comprehensive. coordInated system of care to replace the current
fragmentation of categorical services in the Santa Monica area.
33
PROGRAM
1. Advocate for L.A. County to work with the local hospitals-St. John's.
Santa Monica and UCLA-to provide 8-10 drug detoxification beds m
the Santa Monica area WIth medical back-up.
2. Improve access to primary care services for homeless persons at
Burke Health Center and the Veteran's Administration Hospital.
3. Advocate for Los Angeles County to change exclusionary policies in
developing a coordinated system of care for homeless persons with
multiple diagnoses who require alcohol, drug and mental health
services.
4. PhYSicals required for General Relief Assistance should be provided at
a Westslde chnic or provided by mobile van on a regular basis.
5. Advocate for L.A. County to collaborate in funding a Civilian Assistance
Team in Santa Monica-a social service and transportation effort
staffed by trained personnel who would pick-up and transport publLc
inebriates to a detoxiflCabon or other sobering facility in the Santa
Monica area.
6. Santa Moruca area public health nurses need to provide more outreach
servIces to the Santa Monica shelters and mission.
7. Refer to Mental Health Initiative earlier in this section of the Report
for additional recommendations.
34
INITIATIVE:
PROBLEM
CASE MANAGEMENT SERVICES
Homeless people encounter many barners to finding. moving into and
keeping permanent housing. Because of these barriers. many people need
advocacy and case management to obtain a suitable housing unit. Subsequent
to their moving onto permanent housing. they need assistance in renewing
or developing the coping skills necessary for Independent living: money
management. knowledge of tenants' rights and responsibilities.
housekeeping and parenting. Beyond this. once people settle into a new
home. they tend to need assistance in becoming stabilized in the
community. Special needs populations such as persons with physical
disabilities. mental illnesses and drug or alcohol abuse are in particular need
of case management services.
VALUES
People who have experienced homelessness may need access to coordinated
support services to ensure that they successfully break the cycle of
homelessness. These services should be coordinated by one central agency
case manager to ensure that homeless people do not fall through the cracks
while trylng to access a compbcated entitlement system and an array of
decentralized services.
POUCY
Case management is an essential service approach for homeless people. and
people who are at risk of homelessness. This includes a centrJ:l1f7.ed function
for continuity and coordination of service hnkages between the various
services and govemment benefits which a homeless person must access.
PROGRAM
Comprehensive case management services should be initiated. where
appropriate. at each stage of a person's rehabilitation process in day
programs. emergency. transitional and permanent housing. Program
participants are protected by laws and professional ethics of
"confidentiality." This requires that any sharing of personal information
between agencies about a client only happens once the client signs a
"release of infonnation" fOtIn.
The following components should comprise the critical features of a case
management strategy for all homeless services and shelter fhousing
programs.
1. A case manager or client advocate to assist homeless persons by
ensuring continuity and coordination of services.
35
2. Development of a client-centered actlOn plan outlining goals.
objectives and action steps promoting self-sufficiency. Areas included
In this action plan may include:
· Benefits advocacy;
· Savings and money management;
· Independent living skills trainIng;
· Referrals to legal. health. mental health programs where
appropriate
· Assistance In developmg peer support systems;
· linkages to child care programs and schools;
· Move-in funds and rent assistance;
· Assistance with the landlord/tenant relationship linkages
to job counselmg; andý· Supportive employment.
36
INITIATIVE:
JOB TRAINING AND EMPLOYMENT SERVICES
PROBLEM
In the last decade, nationWide unemployment and underemployment have
been among the maj or contributing factors to both a grOWing homeless
populatIon and imped1ment to breaking the cycle of homelessness. Current
unemployment statistics on the local level as reported by the California State
Employment Development Department 1nd1cate a 9.3% unemployment rate
in Los Angeles County.
Persons out of the job market and homeless for increasingly longer periods
of time require much greater assistance than what 1S proVlded by the
California State Employment Development Department, includ1ng a range of
comprehensive employment-related services. State Department of
Rehabilitation has no mandate to provide vocational services to homeless
persons. A number of prerequis1tes for employment include food, clothing.
shelter. good hygiene. health and mental heahh. These issues must be
addressed to ensure meaningful and ongoing employment for homeless
people.
VALVES
Helping people to help themselves 1S a valued principle held by many in
Santa Monica. People living under extraordinarily difficult circumstances
should have opportunities to regain the skills. supports. work behaviors and
resources necessary to obtain and sustain employment. By enabling people
to provide for themselves and their families, the values of self-esteem.
personal responsibility and self-sufficiency are promoted which ultimately
further personal and community productivity.
POUCY
Santa Monica should prOVide a leadership role in supporting the
development of a comprehensive range of employment related services
specifically targeted to homeless persons and other at-risk populations
including persons with d1sabihties which include physical. mental or
drug/alcohol abuse. Santa Monica should advocate for specialized
employment services for the homeless populatIon with County. State and
Federal agenc1es.
PROGRAM
1. Support all current employment and training efforts within existing
service agencies.
37
L.
2. Establish a new supportive employment traming and placement center
for persons who are homeless and at risk of becoming homeless.
Services should include:
· Facilities with access to telephones. computers;
. Pre-work/prevocational skills training--lnterviewIng.
resume wnting. work behaviors;
· Job and career counseling;
· Job development and placement-centralized job bank;
· Linkages with homeless seI'Vlce providers; and
· Follow-up case management-provide job retention
assistance with employers.
a Develop a collaborative program With a diverse funding base
including support from the Employment Development
Department, State Department of Rehabilitation. Veterans
AdminIstratIon, City of Santa Monica, private sector-business
and industry. religIOus and non-profit sectors.
b. Develop centralized job bank and partnership agreements for job
placement. training and apprenticeships With the City of Santa
Monica. Chamber of Commerce. other businesses and
corporations, religious institutions and non-profit agencies.
Expand current City employment opportunities for homeless
persons to include positions on work crews in public facilities
maintenance. recycling. landscaping and park improvement
efforts and construction of low-cost housing. This would include
the expansion of hiring homeless people for park revitalization
efforts. Ensure that adequate supervision is provided.
c. Develop resources to establish independent business ventures
and client-run busmesses.
d. Establish advisory board/board of directors from various sectors
of the community.
3. Encourage each homeless service agency to assign an employment
Uaison staff person to facilitate referrals and maint~in ongoing working
relationship with the proposed employment center.
4. Support lobbying effort at the State and Federal levels for an increase
in minimum wage/legislation for the unemployed and underemployed.
5. City and funded non-profit agencies are encouraged to act as model
employers by enhancing efforts to hire homeless and formerly
homeless people as a part of the workforce.
38
INITIATIVE:
HOMELESS PREVENTION
PROBLEM
The initial response to homelessness has focused on the need for
emergency food and shelter, followed by the provIsion of additional
assistance to homeless persons-in the attempt to help move them out of
homelessness. Prevention measures to help people avoid becoming
homeless has not been the polley or funding focus. As long as people
continue to become homeless, helping only the already homeless can not
significantly reduce the size of the problem. Failing to prevent
homelessness risks further decline in public compassion for homeless
persons as the number of homeless people increases and support for
government and private efforts to address the problem erodes.
VALUES
Expanded prevention efforts avoid or reduce significant costs associated
with homelessness-an ounce of prevention may be worth a pound of cure.
It is less expensive to help a person or family avoid homelessness than to let
them become homeless and then provide them with emergency shelter and
other services. Moreover, whIle people living in near-homeless situations
face a wide range of basic problems and challenges, preventing them from
becoming homeless can keep the existing problems from escalating and can
block a host of new ones, thereby avoiding a corresponding increase in the
need and demand for costly public and private assistance.
POUCY
Achieving reductions in the size of the homeless population through
homeless prevention initiatives requires the development of a
comprehensive prevention strategy which should be coordinated between
Santa Monica and its neighboring municipalities.
PROGRAM
1. Case management to identify benefits to which people are entitled and
provide referrals to needed services.
2. Expand availability of Section 8 Subsidized Housing Certificates.
Coordinate referrals to affordable housing.
3. Emergency rental assistance program and security deposit guarantees.
4. Access to affordable legal aSSIstance and/or mediation programs.
5. Ensure that there are adequate food banks and food pantries.
39
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SHELTER AND HOUSING
OVERVIEW
The Task Force VIews housing as a VItal part of a comprehensive program
intended to address the permanent needs of homeless people. There is no
reason to expect the numbers of those without homes to do anything but
grow until adequate low and very low Income housing is available. Moreover.
while homelessness is a problem that requires State and Federal
intervention, there is a great deal that can be done on the local level to
promote the development of affordable housing in Santa Monica. and the
Task Force urges the CIty to press forward in this area.
The proposed recommendations in this section attempt to achieve a balance
between:
· The needs of residents and homeless persons; and
· The City's responsibility and the role of surrounding
jurisdictions, local, State and Federal governments
The Task Force proposes the development of a wide range of supportive
housing. linked to services at all levels of the continuum and made up of
small to medium sized facilities or rental units scattered throughout the
City. In an effort to reduce neighborhood impact and create a quality
environment for all residents. each multi-family, industrial and commercial
neighborhood is encouraged to assume its fair share of new shelter/housing
stock for homeless people in Santa Monica.
The proposed shelter and housing program recommendations described in
this section may take a variety of fOI'J11s including:
· New construction. rehabilitation or acquisition of existing
structures:
· School facilities or church basements. pre-fab shelter structures
{for temporary interim shelter};
· Leasing of market rental units by agencies for transitional or
peniianent housing: and
· SRO (single room occupancy) or efficiency units. group homes.
dormitory. shared or congregate housing with or without on-site
supervision. and self-help housing for transitional and
peimanent housing.
Any shelter or housing program should foster a dignifying environment
compatIble with the surrounding community and provide wheelchair
accessibility for new development. Each facility must promote a good
neIghbor policy which speCifies a code of behavior as a necessary program
requirement for all resident participants to accept. I.e.. a reciprocal effort
on the part of each reSIdent. All faciliues should be formally or infOll!!ally
40
linked to support seIVlces including case management, legal, health and
mental health services, and employment assistance. The proposed shelter
and housing programs prioritiZe rehabilitation and stabihzabon toward the
attainment of self-suffIcIency over the proVIsion of emergency shelter.
An array of supportive housing options should be designed to meet the
diverse needs of homeless persons. Priority target groups for shelter and
housing among the homeless populatIon are the mentally Ill, single adults
and families.
The role of the City of Santa MonIca should be to promote the development
of a range of supportive housing options. There are limits to what Santa
Monica can provide in the way of resources and fmancing. However. The
Task Force expects the City to vigorously pursue County, State. Federal,
corporate and other private fInancing options for the development of such
housing. Equally important is the Clty'S advocacy role with local and State
governments to promote finanCing and regional collaboratlOn in planning
and zoning issues as well as a call for a fair share approach to the siting of
facilities and low-cost housing development throughout the County and the
region.
The City must also play a leadershIp role in reducing community resistance
to the development of new facllities. commonly known as N.I.M.B.Y. ("not-
in-my-backyard"). This concept threatens our ability. as a society. to
respond effectively to the problems of poor and homeless people. The City
should address the N.I.M.B.Y. attItudes by facilitating the development of
community acceptance strategIes to include: 1) facilitate discussion and
mediation between neighbors and shelter/housing developers: 2) amend
current zoning regulations which slow down or prohibit the development of
new shelter and housing for special needs populations; and 3) provide
technical assistance to local non-profit and for-profit housing developers.
The continuum we are recommending adds the following new shelter and
housing to exisbng options for homeless persons:
1. Approximately 150 Emergency Cold Weather Shelter beds on the
Westside coordinated with the City and County of Los Angeles for a
continuous 90-day pertod annually:
2. 20-40 short-term emergency shelter beds;
3. One or two 50-55 bed transitional or permanent housing facilities
(SRO, congregate. dOi'rnitory or other shared units with clear program
expectations of clients):
4. 8-10 short-term emergency detoxification beds (with medical back-
up) for drug and alcohol abusers, prior to entry into a recovery
program:
41
5. 10-20 short-term emergency beds for the homeless mentally ill who
are in CnSIS:
6. 24 transitional housing unIts for families (First United Methodist
Church) for 6-12 months. requinng tenant income and rent payment:
7. 36 peuuanent SRO units for mentally ill adults (Step Up on Second).
requiring tenant income and rent payment;
8. 55 transitional beds for adult men and women (Ocean Park Community
Center). requiring some income and mandatory savings toward
independent rentals: and
9. 6 transitional units/beds to reopen St. Joseph Center's Next Step
house.
Summary c;>f Maximum Number of Recommended Beds and Units
Recommended Westside Emergency Cold Weather
Shelter Program - expansion from current 60 continuous
days to 90 continuous days (annually, during cold
weather months only): 150 beds
Recommended Shelter and Transitional Beds: 131 beds
Recommended Housing Units: 170 units
Further detail of existing and recommended shelter and housing is included
in charts provided in Appendix C of this Report.
Please note: The naming of agency-specific housing programs is not
intended to exclude other shelter and housing programs.
Rather. it is intended to identify those major efforts already
underway in the community and to pnoritize support for
these projects.
42
INITIATIVE:
PROBLEM
EMERGENCY COLD WEATHER SHELTER
Dunng cold or Inclement weather, the need of homeless persons for
overnight shelter Increases substantially in com pans on with the need dunng
milder weather. CommunIty public health concerns demand that cold
weather emergency shelter be provided. No single community or
governmental entity can carry the burden of this effort.
VALUES
In spite of its reputation for mild weather, Southern California can be cold in
the winter. especially at night. Cold weather programs should be more than
a bed for a night at some unknown, constantly shifting site. Cold weather
programs should be stably located in a single site throughout the program's
tenure so that homeless people can access shelter with some reliable sense
of what to expect. Moreover. cold weather programs should not simply
house people but should serve as an entry point into a service network that
can help empower people to make changes in their lives.
The City of Santa Monica has made enormous strides in this direction.
displaying a commitment to a quality of care that has not been matched by
other local governments, including those with whom it has partnered. The
Task Force belIeves that it is essential that Santa Monica continue to develop
collaborative partnerships with the surrounding cities and Los Angeles
County.
POUCY
Santa Monica's practice of participating in a minimum of sixty days of
continuous shelter to its homeless citizens during the winter coldest period
is a critical aspect of a responsible and humane homelessness policy. Santa
Monica should work in partnership with surrounding communities. the City
of Los Angeles, Los Angeles County and the local FEMA Board to develop one
regional program for the entire region from year to year.
PROGRAM
1. Governor WlIson has announced a statewide initiative to: 1) open the
State national guard armories for Emergency Cold Weather Shelters
for the homeless for 90 continuous days begmning November 1st, and
2) allow for the extension of the program for an additIonal 60 days (a
total of 5 months) if local conditions call for it.
We urge the City of Santa Monica to utilize existing funds, already set
aSIde for this year's cold weather shelter program, to fund 30 days of
the program as an extension of the 60 days currently being funded by
the CIty and County of Los Angeles.
43
2. We urge other neIghboring cIties to match Santa Monica's fundIng at
50 cents per capita to enable West Los Angeles and Culver City
armories to operate those additIonal 30 days.
3. Lastly. we urge the Los Angeles County SupervIsors and Los ~geles
City Councilmembers to consider utilizing the armories for the full 5
month period because of the magnitude of the local homeless crisis in
Los Angeles County for this and the commg year.
44
INITIATIVE:
BASIC EMERGENCY ICRISIS SHELTER
PROBLEM
There are circumstances. either externally or Internally imposed which
make it difficult for a homeless person to participate in a structured shelter
prograln geared toward permanent life stabilIzation. These may include
active substance abuse. mental health CriSIS, domesbc violence. and personal
disorientation. For these circumstances short-term crisis shelter can help
an indIvidual overcome the crisis and prepare for active participation in a
program designed to change his or her life on a more permanent basis. The
shortage of such crisis shelter services precludes many individuals from
partiCipating in longer term shelter/houSing programs.
VALUES
Short-tenll shelter should provide an environment in which homeless
people can begin to recover from the most acute effects of bemg homeless
and should be geared to serving specific populabons in need (e.g.. mentally
ill m crisis. active drug and alcohol abusers. etc.). The goals of such shelter
are: 1) to provide a safe environment. free of violence. drugs and alcohol;
2) to help the person overcome hIs/her specific crisis: 3) to assist the
person to enter a more long-term shelter fhousing situatIon and obtain
supportive services; and 4) to improve the quality of life for all Santa Monica
residents.
Short-tenn cnsis sheltering alone does lIttle to help people move off the
street permanently. But linked to more structured. longer term
shelter /housing programs it can be a critical first step in helping to break
the cycle of homelessness.
POUCY
Short-term emergency shelter jhousmg is defined as housing for a period of
one night to 60 days. at no cost to those sheltered.
The majonty of the Santa Monica City resources devoted to shelter/housing
should not be directed to short-term shelter. However. a portion should be
directed in this area to serve special needs populations.
45
PROGRAM
1. Interim Shelter
We are proposing the provision of an emergency ordinance to expedite
the development of an interim shelter which would be developed as
soon as site, resources and shelter operator could be identified. This
Interim shelter could be:
· No larger than 50 beds (not exceed number of beds
recommended in the Emergency Shelter section);
· Operating for no more than 2 years (until other shelters
and transitional housing projects could be developed);
· Reviewed annually to assess neighborhood impact through
the standard City review process; and
· Estabhshed at a temporary site.
2. Short-tellu emergency shelter should be limited to a length of stay of
60 days and:
· Be as accessible as security and hygiene consIderations
allow:
· Provide 2-3 meals per day. bathrooms, showers, and
adequate secunty;
· Offer staff supervision and special support required by the
population it is geared to serve (e.g., drug detoxification,
mental health crisis); and
· Be appropriate for any indoor space offering minimal
protection from the elements (e.g.. church basements.
school buildings, armories. temporary structures).
The prionties for such basic emergency/cnsIs shelter are:
1. 8-10 short-term detoxification beds with medical back up for drug
abusers wanting to get off alcohol and drug dependence as a first step
to accessing shelter programs;
2. 10-20 CriSIS beds for homeless mentally ill people in mental health
crisis. These should include a mix of inpatient hospital beds and
community-based cnsis beds and should be capable of serving persons
with a dual-diagnosis (mental illness and drug and alcohol); and
3. 20-40 short-ter'i11 shelter beds for single adults available throughout
the year.
46
INITIATIVE:
PROGRAM-BASED TRANSITIONAL H01,J$INc.
PROBLEM
In order to move from homelessness to stability, homeless adults and
families need adequate time (sometimes up to two years) and sufficient
support to rebuild their lives, address health and mental health issues,
adjust to a more stable lifestyle and save money for independent living.
Short-tel'lli crisis shelter does not afford enough time and program support
to make such a transition possible and successful and often serves as simply
a revolving door back to the street.
VALVES
The goals of program-based transitional housing are:
1. To assist people In getting off the street permanently and resocialized
to a more stable lifestyle;
2. To provide the necessary support services to assist resident
participants to obtain employment, benefits, mental health care if
needed, job training. permanent housing; and
3. To require participation by the resident/participant in the
development of a plan of action toward income support and
permanent housing including paying a portion of one's public benefits
or income for monthly rent.
POUCY
Transitional housing (usually designed for up to a 2-year length of stay) can
take many fOllllS including dormitories, shared and congregate facilities or
apartments, self-help housing. semi-private sleeping areas.
Development of such facilities could include purchase and rehabUttatlon of
exiSting buildings, new construction. or rental units leased by an agency for
transitional housing.
Such program-based housing i& a priority for City support as it is the most
effective in facihtating a penllanent move away from homelessness and
should be designed to serve specific populations in need (e.g.. mentally ill.
families, single adults. youth. etc.)
47
PROGRAM
The following are pnorities for development of program-based transitional
housing/ shelter:
1. 24-unit transitional housmg facility for homeless families proposed by
First Methodtst Church;
2. 55 bed transitional housing program for adults proposed by Ocean
Park Community Center.
3. One or two new maximum 50-55 bed transitional housing or
permanent facilities (which could include congregate or shared units);
4. Reinstate operatmg funds to add 6 transitional housing units to St.
Joseph Center's Next Step Program: and
5. In consultation with residents and business people. the Planning
CommissIOn and City staff should revise housing codes and ordinances
(e.g.. building and zoning codes. parking requirements. and density
limits) to facilitate the estabhshment of transitional housing projects.
An additional category that allows for transitional housing might be
included in multifamily, commercial, and industrial neighborhoods.
Parking requirements for such use should be set at a level which
recognizes the low parking demand likely to be generated by
transitional housing.
48
INITIATIVE:
PROBLEM
PERMANENT HOVSING
In 1980 the Federal government spent 7% of its budget on housing. In
1988 it spent. 7% of the budget on housing.
According to Southern California Association of Governments (SCAG), the
regional planning body. Santa MonIca has a jobs/housing imbalance. There
is a direct connectIon between lack of pe.l'lnanent housing for low and very
low income people and the problem of homelessness in our community and
in the nation. Permanent housing is created over time and, conversely, the
lack of permanent housing today stems from lack of and falled poliCies of
Federal. State and local govemment.
We see the results daily-people are hVlng on the streets of America today.
A categOIY of rental housing includes the single room occupancy (SRO) hotel
and boarding or rooming houses, which is generally the least expensive
housing and frequently the only hOUSing option available to the lowest
income households. There are few remaining resources of this type in the
City. Since 1980, nine SRO hotels have been closed. removing a total of 327
low cost units from the housing stock. 7
VALUES
Decent and affordable housing is a basic human need and should be available
to every citizen, regardless of their psychological or sociological status.
Santa Monica desires to be an economically balanced community.
POUCY
The development of housing for low-income people should be a major
priority for the City of Santa Monica. The City should reorganize its
priorities to spend its staff and monetary resources towards achieving annual
targets of housing unit goals to increase the City'S low income housing stock
and develop a variety of housing options as described in this Report.
The City should utilize parcels of land it currently owns for the development
of low and very low income housing.
The City's Housing Element should be reevaluated in light of recent
downzoning of reSidential areas. The State of California has cautioned the
City about the further downzoning as a mechanism that Inhibits the building
of housmg. The Task Force shares these concerns.
49
PROGRAM
1. The City should support the development and expedite the planning
process for Step Up on Second proposed 36-unit SRO housing
development for mentally ill adults.
2. The City should not downzone any other areas of the City where there
exists the possibility of building housing.
3. The City should support projects currently beginning the planning
process that will provide SRO's.
4. Santa Monica should look at ways to Increase the number of units
without necessarily increasing the allowable footprint and
development envelope of a building, I.e.. smaller units that would
necessarily be more affordable.
5. The City should look at ways to encourage congregate housing to be
built.
6. The City should create incentives to encourage all builders of
affordable housing such as Community Corporation to set aside a set
percentage of their units for fouJ.lerly homeless people coming out of
programs and other self-help housing groups.
7. The City should develop a plan to ensure that mixed use projects in
which housing has been approved actually do include those housing
units when the project is complete and occupied.
8. The City should convene a summit between the Planning and Housing
Commissions, Land Use and Transportation Management Department,
Housing Division. and Rent Control Board to create an integrated low-
cost housing plan for the City.
9. City parking lots and City-owned land should be pursued as especially
suitable sites for use of air nghts to build affordable housing. The City
should also actively pursue the use of privately owned parking lots for
low-income housing development.
10. Encourage developers to develop partnerships with non-profit
agencIes to meet requirements for affordable ho~sing development.
11. The City should support involvement of private lenders in finanCing
the first few years of acqUIsition and development costs for new
housing projects which would be guaranteed by the City with money
set aside for this purpose.
12. The CIty should make a public statement of all City-owned land. both
within and outside the City hmits, With maps showing locations.
50
13. The City should consider reducing processing fees for affordable
housing projects.
14. The City should work with Rent Control Board and landlord
community to encourage rental housing owners to remmn in the rental
housing business since private rental housing is one of the chief
sources of affordable housing in Santa Monica.
15. The City should encourage the expansion of landlord participation in
the Rent Control Board's Incentive Housing program. Agreements
between landlords and agencies should be facilitated. These
agreements would have the following effects:
· Increased economic viability and preservation of rental
housing;
· Dedication of units for low income households; and
· Opportunities to add incentives for service agreements
between agencies and landlords.
51
INITIATIVE:
PLANNING AND ZONING
PROBLEM
While the City of Santa Monlca.s policies support the development of
shelter. transitional housing, and low cost housing. the City's actual planning
and zoning restrictions and implementation make it difficult to develop such
facilities within the City hmits. An examination of these various
requirements could proVlde enormous assistance to agencies and developers
interested in creating a range of housing opportunities which would ease the
homeless problem in Santa Monica.
VALUES
The Task Force supports the development and support of a range of small to
moderately-sized, decentralized shelter. transitional and permanent housing
options scattered throughout the City designed to meet the needs of various
target groups among the homeless population. The concept of each
neighborhood housing its "falr share" of facilities is encouraged.
HOUSing facilities should promote a dignified environment compatible with
the surrounding neighborhood. All facilities should promote a good
neighbor policy among the resident participants.
Historically planning and zoning requirements in various cities have served
to restrict access to housing for special populations (e.g., the mentally Ul,
low income families) and effectIvely discriminated against special needs
groups. Santa Monica must ease its zoning and planning restrictions to end
this discrimination not only because it is poor public policy but also because
it could be in violation of the Americans with Disabilities Act of 1991.
POUCY
1. The City's Zoning Code and Building Codes should be amended to
remove some of the restnctlve requirements relating to shelters for
the homeless. For example. the concentration of use provision should
be eliminated or relaxed as should the restrictions on numbers of
shelter beds, parlong requirements. size.
2. The Zoning Code and Building Codes should be amended to provide
for separate classifications for transitional housing and single room
occupancy housing. As the requirement regarding parking for senior
housing has been adjusted to reflect the reality of senior vehicle use,
so should the parking requirements for low and very low income
housing be reduced to reflect the actual limited or non use of vehicles
by residents of these facilIties.
52
3. The development of transitlOnal housing and single room occupancy
housmg should be given prionty status. SRO's and transitional housmg
should be treated in the same manner as other residential projects In
the same zoning distnct. If a CUP (condluonal use penlIitl is required
for residential use in a particular zoning district, SRO and transitional
housing projects would be subject to that same regulation; if a CUP is
not required. SRO's and transitional housing projects would not be
subject to the regulation either. (Please refer to the Advocacy and
Partnerships section for the Community Participation In Siting
Housing and ServIces Initiative.) This Task Force has idenufied this as
an urgent issue.
PROGRAM
1. The Proposition R implementation ordinance must be written so that
it allows payment of In lieu fees or the constru.ctlon of off-site housing
to meet the developer's obligation for the provision of low-income
housing, A portion of the in lieu fees should be used for the
constnIctlon of SRO's and shelters for the homeless. Furthermore. a
fOfIllula should be created whereby a number of SRO units or homeless
shelter beds count as a unit of housing to provide an option for
developers to build shelters or SRO's to satisfy the Proposition R
implementation ordinance.
2. The City should continue examining the possibility of rezoning of
portions of the C-5 Special Office District and MI Industrial District
for the full spectrum of multi-residential use including very low
income units.
3. The City should alter its parking requirements and restrictions on the
size of units for new affordable housing developments such as SRO.s
and congregate housing to facilitate the feasibility of building such
units. The reality of limited automobile ownership and limited space
needs of mdividuals (well below the 410 square foot minimum) must
be taken into consideration.
If less parking is to be proVlded than is called for in the existing Santa
Monica zoning code, tenants of these SRO facilities must affirm in
their leases that they do not have cars and that they will not acquire
cars. This will prevent present and future occupancy of these units by
persons who would then park on the street and add to the already
congested street park1ng conditions in Santa Monica.
4. The City should consider an expanded density bonus program for
affordable housing projects in residential and commercial zones.
Other incentives such as adjustments to lot coverage. setback, height
and other requirements should also be considered.
53
5. Housing should be a "permItted use" in all commercial zones and,
except for large projects. should not be subject to a discretionary
review process.
6. ProVide significant incentives such as FAR (floor area ratio) bonuses or
height exceptIons for inclusIon of targeted housing in mIXed use
proj ects in commercial zones.
7. The City should study the Arnencans with Disabilities Act to see how it
can apply to aid those churches and social service providers
attempting to build housmg.
54
RESOURCES AND FUNDING
Due to the public's and City Council's urging to release this Report prior to
the end of 1991. the Task Force was unable to complete this section with
the level of detail appropriate for implementation. Therefore, the Task
Force requests that the CIty provide a revenue and cost analysis as part of
the Report implementation plan within 90 days.
The Report's recommendations should assume draWlng significant non-City
resources in the fatui of government (County, State and Federal) grants as
well as support from area and national foundations. There is a limited
amount of funding that a municipality, the size of Santa Monica can provide.
Priority for funding must be given to programs which can demonstrate
success, are self-supporting or result in attracting alternative sources of
funds. Priority should also be given to efforts that use pro bono, volunteer,
and in-kInd servIces wherever possible.
The comprehensive policies and programs recommended in the Task Force
Report represent a multi-year approach. While a number of
recommendations can be implemented WlthOUt new expenditures, many
require funding and resources which are not now aV8.11able. The Task Force
supports a responsibly built network of services and projects which have the
ability to sustain themselves over time rather than a fast start-up of
numerous programs which will be short lived. Therefore, we understand
that resource and program development will proceed over at least a five year
period 1f Hll the Report's recommendations are accomplished.
The Task Force recommends that the City explore the following new
sources of funding,
1. Through an agreement Wlth the County of Los Angeles, utilize revenues
from an increase in parking ticket fines. from the current $13.00 to
$23.00 per ticket, a level consistent with surrounding communities.
2. Maximize funds available from the California Housing Finance Agency
and other sources for the development of housing units.
3. Provide a one tIme payment in the amount of $500,000 from City
Reserve funds or other City resources to be used for capital for
shelter /houslng projects.
4. In addition, substantial resources could be provided for the creation of
housing and shelter facilities through the implementation of the
Proposibon R ordinance as recommended in this Report.
55
5. Other funds and resources targeted to implement such a plan include:
· Land currently owned by the City both within and outside
of its boundaries;
· Funds made available through the Federal/State/County
governments;
· Funds made available through private lenders; and
· Public/private partnerships.
.
56
ADVOCACY AND PARTNERSHIPS
OVERVIEW
The ambitious plan set forth In this document can only be implemented
through the strong commitment and coordinated partnership of the
multiple sectors of our community. Local govemment can playa leadership
role in initlating efforts to address homelessness. However, implementation
of the comprehensive plan recommended here will require the involvement
and participation of the enure community.
Making our streets and other public areas safer, providing meaningful social
services and sendIng a strong message to County. State and Federal leaders
are the responsibility of all of us.
Increased collaborabve efforts, coordination and accountability among
programs. City departments and government entitles is necessary. More
JOInt planning and collaboration efforts will reduce fragmentation and
elIminate duplication of services and resources. Development of systems
for research and program outcome evaluation purposes will further these
efforts and guide the City toward longer term solutions.
It is clear that Santa Montea should not and cannot shoulder the burden
alone for funding the extensive array of services proposed in this Report.
Instead, the City of Santa Monica should take a leadership role in advocating
for all government entities to take on their fair share (e.g., State and County
providing mental health, drug. alcohol and other specialized health and
employment services).
57
INITIATIVE:
ADVOCACY: A POLITICAL ACTION PLAN
PROBLEM
The homeless crisis has been aggravated by major shifts In pubhc policy and
funding responsibility at the Federal and State levels in the areas of
affordable housing and human seIVlces. Solubons will require involvement
on the Federal, State, local levels of government, private bUSIness, religious
sectors and general community. Furthenllore, the situation in Los Angeles
has been aggravated by the lack of regional government collaboration
including all municipalities, private foundations. religious. business and
social service sectors.
Overall, there has been a lack of direction and organization to prOVIde
opportunities for volunteer involvement so that individuals and groups know
how to get involved.
VALUES
Ending homelessness is the responsibility of all of us.
1. Housing is a necessity and when it is not available, people have no
other altemative but to live in public places.
2. Care of the mentally ill has apparently become no one's priority-it
must be everyone's priority.
3. Honoring our nation's commitment to veterans has been abdicated by
national leadership-which must change. A large number of mentally
ill homeless are Vietnam Veterans-the Veterans Administration must
be held accountable.
4. Social programming is an aspect of our environmental infrastructure.
Commitment to one portion of that agenda (such as air quality, road
capacity) is not balanced unless it includes commitment to other
priorities such as affordable housing and human services.
POllCY
GIven the limitations of City dollars and the mandate for County, State and
Federal governments to assume fiscal responsibility, the City of Santa Monica
must play an active advocacy role With County. State and Federal
governments.
Santa Monica City officials should take a leadership role in developing
ongoing partnerships with neIghbonng cines in southern Califomia so as to
promote regional homelessness policy development, funding and
implementation.
58
PROGRAM
1. This Task Force will reconvene to explore the feasibility of initiating
appropriate actions against other jurisdlCtions (i.e., Federal, State and
County governments) that have failed to meet any legal duties toward
the homeless. to remedy any failure to comply with existing law, to
compel action WIth regard to funding or implementation of programs
mandated by law. Actions to be considered should include, but are not
limited to the following:
· Planning a State initiative;
· Taking legal actions based on failure to meet statutory or
constitutional mandates; and
· Other activities designed to implement Task Force
recommendations at Federal. State and County levels.
2. Advocacy and Partnership Efforts Targeted to Los Angeles County
In recent months, Los Angeles County Board Supervisor Ed Edelman
has demonstrated his commitment to play a leadership role and
enhance County services for the homeless, particularly the mentally ill
homeless, on the Westside. Supervisor Edelman has been
instrumental in convening a Countywide Coordinating Council on
Homelessness. These efforts are critical to build a stronger County
role in assisting homeless people.
We advocate the following changes be addressed to the County:
a To create an official local mental health advisory body whIch
represents Santa Monica's interests In the process of allocabng
funding for mental health programs which has now shifted from
the State to the County level as a result of the State's
realignment of mental health services. This body should include
business as well as government and agency representation.
b. To urge Los Angeles County Board of Supervisors to provide the
necessary services at Santa Monica West Mental Health Clinic,
Burke Health Center and other agencies to provide new alcohol
and drug detoXlfication beds, psychiatric beds, day services and
Civilian Assistance Team (see Health. Mental Health Services
and Public Health and Safety Program Recommendations
Initiatives)
c. To establish a local homeless coordinating council made up of
representatives from city, State and Federal government and
non-profIt sectors including drug, alcohol. mental health and
welfare departments, Social Security Administration, Veterans
Administrabon, State Employment Development Department,
59
volunteer, religious and business sectors to focus on
coordination of resources and advocacy.
d. To urge the Countywide Coordinating Council on Homelessness
and relevant County departments to work with the City of Santa
Monica to implement the recommendations in this Report.
e. To explore the feasibility of Santa Monica and other cities in Los
Angeles County, joining with the County and City of Los Angles m
the "Joint Powers Agreement.. to coordinate policies and
funding for homeless services on a regional basis.
f. To penalize cities that do not provide services for the homeless
within their boundaries. Explore feasibility of the SCAG
(Southern Cahfornia Associauon of Governments) or some other
entity to develop a formula which sets local standards for
affordable housing, shelter and related services by population for
each city/area of the County. Request that the County utilize
these SCAG standards as a basis for allocating County funds.
Those areas which do not provide their "fair share" would not
receive County support m other areas,
3. Advocacy Efforts Targeted to the State of California
a To make health and mental health services a higher budgetary
prionty.
b. To provide funding for speci~H'7.ed job training and employment
services, and resources targeted to homeless persons through
the local Employment Development Department and
Department of Rehabilitation.
c. To provide funding for transibonal and low-income housing
development.
d. To provide access to National Guard AiIllories for continuous
winter sheltering.
e. To reinstate the California Conservation Corp.
4. Advocacy Efforts Targeted to the Federal Government
a To provide a substantial increase in funding for affordable and
low-cost housing development, funding for job programs and an
increase in Section 8 rental housing subsidies.
60
b. To urge the Veterans Administration to provide housing, health
and mental health services for homeless veterans. The
Brentwood Veterans Administration should be urged to utilize its
vacant land and buildings for housmg homeless veterans.
c. To ensure that McKinney Act funding be flexible and sufficient to
meet demands in citIes such as Santa Monica with a large
homeless populabon.
5. Sponsor a conference on homelessness. in cooperation with SCAG or
the League of C~ lifomia Cities about the national cnsis which has been
created In part by the failure of national and State initiatives. inviting
participation from cities and leaders of the religious community that
have different plans and solubons.
6. Request the Santa Monica City Council to approach officials of Malibu,
Culver City and Beverly H1l1s to offer Santa Monica area agencies to
screen clients for housing to be estabbshed in their own communities.
7. Advocate that the media cover those "success stories" that occur every
day in social service programs so people know that we are successfully
responding to thiS crisis, that there is hope. and that their tax: dollars
are at work productIvely in homeless services. Request that this be a
regular feature.
8. Organize the Task Force on Homelessness and other local
representatives to go to Sacramento to present this Report and seek
leadership and assistance.
9. Strengthen the efforts of the Business/Government Council to End
Homelessness (a stateWlde advocacy coalition of city and business
leaders) to be the vehicle to implement many of the above-mentioned
recommendations.
10. The Westside Ecumenical Conference. the business community and
other organizations are urged to strengthen their social and political
acbon efforts to include the following:
· Conduct ongoing letter writing campaigns to legislators:
· Expand existing Adopt-a-Family program; and
· Develop partnerships with non-profit agencies and housing
developers to create SRO and other permanent housing.
11. The Santa Monlca-Mal1bu Unified School District is encouraged to
prepare a plan to coordinate support to homeless children and
families with the various service agencies, shelters and missions.
61
INITIATIVE:
PROBLEM
PROGRAM DESIGN. COORDINATION AND EVALUATION
Limited resources and increasing need dictate the importance of
coordinating County, CIty and private non-profit services and ehmlnating
unnecessary duphcation and fragmentatlon whenever possible. Unnecessary
duplication and fragmentation of services diminishes the effectiveness of
efforts to assist homeless people. Furthermore, it is essential that the City
work to reduce confusion and Inconsistencies between departments in
dealing with homeless-related Issues.
VALUES
The City should mcrease coordination of efforts among key departments, the
non-profit sector and the business community to develop cooperative efforts
in addressing homelessness. While diverse philosophies and approaches are
to be expected in all levels of government and in the community, it IS
essential that common goals be clear and consistently followed in policy
implementation. Furthermore. it is essential that the County become an
active participant with the City and local service providers.
POUCY
The approach to homeless services must be a collaborative process which
emphasizes what each community entity can bring to the solution. The City
should require all contract agencies to coordinate programs with other
agencies. New programs which include well-designed coordination
mechanisms should receive priority funding consideration. A
comprehensive and cohesive homeless policy (as outlined in this Report)
should be consistently implemented across all City departments. The
County of Los Angeles must be an active player in pollcy, funding and service
delivery related to homelessness.
PROGRAM
1. EstablIsh a Westside homeless coordinating council made up of local,
State, Federal and non-profit representatives, City, County, drug,
alcohol. mental health. Federal Social Security Administration,
Veterans Administration. State Department of Rehabilitation,
Employment Development Department, Department of Public Social
Services, non-profit. volunteers, religious and busmess sectors to focus
on coordInation of resources and advocacy.
2. Develop an interdepartmental coordinating body within the City
staffed with representatives from each department dealing WIth
homelessness. for the purpose of implementing a consistent and
coordinated citywIde homeless policy.
62
a Develop comprehensive training and protocol for police, park
rangers and all City employees working In pubhc spaces to
increase understanding and knowledge of the homeless
population and available resources. Ensure that all front-line
staff are adequately trained (hiring or contracting With
professional trainers. as needed) and supervised to proVlde a
"human service" oriented presence in the community.
b. Establish increased accountability throughout City departments
relating to homelessness. stressing program cost-effectiveness.
public access to budgets and workloads of the various City
departments and City-funded programs.
3. Medical, mental health, and social work outreach teams should meet
regularly and should conduct regular case reviews. Santa Monica
outreach teams and service providers should work in conjunction with
City park rangers. pohce and other appropriate City personnel.
4. City staff should meet regularly with the executive directors of City-
funded agencies which serve the homeless in the Santa Monica area to
address planning and coordination Issues.
5. City-funded agencies should be required to establish a process by
which homeless people are matched with the most appropriate lead
agency for their needs and do not receive duplicate services from
another agency. Institute ongoing case management services.
6. Promote the involvement of program participants in attaining
self-suffiCIency for all City-funded homeless services including:
a Creation of a revised quarterly report form/and monitoring
process to reflect a focus on client outcome measures and
program Impact. e.g., numbers of persons obtaining shelter and
housmg. maintaining permanent housing and jobs.
b. Implementation of a program outcome evaluation of all City-
funded programs examining the impact of City-funded services
including tracking of success and recidivism rates.
c. Involvement of clients in the planning, Implementation and
evaluation of programs and encouraging volunteer and paid
pOSItions for homeless or formerly homeless persons where
appropriate.
7. CollectlOn and analysis of data regarding homeless population
demographics, impact and outcomes of City-funded programs, service
utilization pattems, and cost analyses. Develop a database within the
Community Development Department for research and program
evaluauon.
63
INITIATIVE:
PROBLEM
PUBLIC EDUCATION/COMMUNITY INVOLVE:MENT
More publ1c education and community involvement are needed in dealing
with issues relating to homelessness. Members of the community who are
currently not actively involved in the issue of homelessness represent a large
untapped resource and efforts should be made both to educate the public
and to encourage them to help with solubons. Education about the broad
range of public safety Issues like home security, rape prevention and other
urban safety concerns should be promoted.
VALUES
As a community, we must provide education on the full range of urban safety
issues to decrease the experience of the feelings of vulnerability on the part
of all citizens. Increased awareness leads to greater feelings of security and
safety.
POUCY
Actively promote the further education and involvement of the community.
Develop a campaign to actively encourage members of the community to
contribute money. expertise, time and services to community service
agencies. Such education and community involvement should be
implemented through public agencies of the City, including the Police
department and the Santa Monica-Malibu Unified School District, and the
private sector. including religious insbtutlons and the Santa Monica
Chamber of Commerce.
PROGRAM
1. Develop educational materials about rules of parks, standards of public
behavior, norms for public spaces and how to respond to panhandling.
Materials could target tourists, residents, merchants, youth and
homeless people.
2. Enhance the role of outreach teams, park rangers, police and other
public personnel to include public education. Ensure that all such staff
promote a "human service" orientation by providing assistance,
information and education which extends beyond the traditional role.
3. Develop a resource and technical assistance clearinghouse which could
match individuals and organizations offering pro bono assistance to
homeless projects. Such an effort should include establishment of a
Speakers Bureau to provide information about homelessness to
neighborhood, civic, rel1glOus, business and other community groups.
Promote solutions and concrete ways to get involved.
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4. Develop an Urban Safety Campaign by expanding nelghborhood watch
groups and including information about ways to improve personal
safety.
5. Ensure coordinated and ongoing training of all City staff interacting
regularly with homeless people (police, paramedics, park rangers,
librarians). Review procedures, trairung and supervision for the Los
Angeles Police Department's Mental Evaluabon Unit to Incorporate
into City training and protocol.
6. Use of City 1V for public service announcements and educational
programs.
7. Use of the City-funded Business Government Council to End
Homelessness/Educational Fund for informing the pubbc about the
failure of the mental health system, the solutions available for the
homeless mentally ill and current restrictions of mental health laws
pertaining to involuntary hospitJ:llizabon. Additionally, the Educational
Fund should seek to conduct outreach and public education efforts on
a variety of issues related to homelessness, in conjunction with service
providers and advocates.
65
INITIATIVE:
COMMUNITY PARTICIPATION IN SITING HOUSING-
AND SERVICES
PROBLEM
Hlstorically, community opposition to the estabhshment of facihtIes for
special needs population known as N.I.M.B.Y. ("not-in-my-backyard"), has
been a major obstacle to developing housing and community-based services
for persons with mental illness. developmental disabilities, drug and alcohol
problems and more recently. for persons without housing. The fears of
neighborhood residents include declining property values. increased crime,
deteriorating quality of life factors, loss of local control and increased traffic
congestion and parking. These are real concerns to neighborhood residents
that City leadership should not ignore. These concerns should be addressed
to maintain community support for homeless programs. Low cost housing
projects which are carefully planned and designed can often be viewed as
among the most attractive structures in the community.S
VALUES
.As a community, we must address the legitimate concerns of residents
without discriminating agamst persons in need of shelter. housing and other
support services. We must make every effort to promote the creation of new
facilities and residences for homeless persons which are compatible Wlth
surrounding neighborhoods. It is essential that prior to building any new
housing or service project, adequate time is taken for discussion and
involvement from neighbors. The inclusion of neighborhood input in a
constructive process often results in a more acceptable facility.
POUCY
The City of Santa Monica should playa leadership role in supporting
neighborhood education and planning efforts of non-profit developers and
homeless service providers. The City of Santa Monica should designate staff
and resources to work with community agencies and residents. when
needed. to fac1l1tate communication and involvement.
PROGRAM
1. Facilitate neighborhood-based problem solving through community
non-profit organizations. housing developers and neighborhood
groups. If needed. provide funding for mediation services.
2. Provide technical assistance and infOllnation to local non-profit and
for-profit housing developers in developing education and outreach
strategies before the controversy begins (i.e., written fact sheets, fllms
and other educational and media materials).
66
3. The above strategies must address legitimate neighborhood concerns
Including:
· Early nOtIfIcatIOn of residents about new projects;
· Aesthetics of the project Including building maintenance
and landscaping;
· Code of behaVIor from resident particIpants:
· Crime prevention: and
· Environmental Impact on surrounding area.
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ENDNOTES AND REFERENCES
Endnotes
1 U.S. Conference of Mayors, A Status Report on Hunger and
Homelessness in America's Cities: 1990, A 3D-City Survey (Washington D.C.,
1990) .
2City of Santa Monica, Santa Monica Police Department, Crime
Statistics (1990-1991).
3California State Penal Code, Section 602.1, Trespassing on Private
Property.
4Robert M. Myers and Jerry P. Gordon, Alternative Sentencing, A
Report Prepared for Homeless Task Force (November 1991).
sU.S. Conference of Mayors. Mentally III and Homeless. A 22-City
Suroey (Washington D.C., 1991).
6The Los Angeles Homeless Health Care Project, Barriers in Access to
Substance Abuse Treatment Services for Homeless and Other Low-Income
IndwidllfJJS in Los Angeles COWlty (Los Angeles, CA. 1991).
7Clty of Santa Monica, Housing Element of the General Plan
(September 1991).
SA Home-Base Report. Neighbors, After AU: Community Acceptance
Strategies for Siting Housing and Services for Homeless People (San
FranCISCO, CA, 1989).
References
The Berkeley Cares Program. Homeless Voucher/Donation Pro1ect. June
1991.
California State Penal Code. Section 602.1. "Trespassing on Private
Property. II
Linhorst. Donald M. 'The Use of Single Room Occupancy (SRO) Housing as a
ReSIdential Alternative for Persons with a Chronic Mental Illness."
Community Mental Health Journal. April 1991.
Myers. Robert M. The Homeless in Santa Monica. February 1988.
68
PEN Action Group. SHW ASHLOCK Report: A Proposal to Provide Homelees
Peonle Increased Access to Shower. Laundrv. Locker and Job Referral
Facilities. May 1990.
Portland, City of. OR. Breaking the Cycle of Homelessness: The Portland
Model. May 1987.
Rubin, Judge Laurence D. and Admire, Leslie Q. "Community ServIce as an
Alternative Sentence in Los Angeles County MunIcipal Courts", Report
Of the Jail Overcrowding Committee. August 1990.
Santa Barbara, City of. Municipal Code. Chapter 15.16. "Public Beaches and
Parks."
Santa Monica Area Chamber of Commerce Reports. Public Safety Report,
March 1990. Housing and Services Report. July 1990. Development
of Homeless Facilities in Santa Monica, December 1990.
Santa Monica. City of, Community Development Department. An Overview of
Citv-SuDDorted Mencies Servinil the Homeless. June 1990.
- - - - -
Santa Monica. City of, Santa Monica Police Department, Fire Department.
Cultural and Recreational Services, City Library. Community
Development Department. City Attorney. r>epartment Memorand~ to
the Santa Monica Task Force on Homelessness. May 1991.
Santa Monica Working Group on the Homeless. Reoort on Homeless Crisis
in Santa MoniGa. May 1985.
Seattle, City of, WA. Homeless Priority Agenda" August 1989. Status on
Homelessness. Summarv Undate. November 1989.
Shelter PartnershIp. "Ending Homelessness: 10 Steps in Which Every
Community Should be Engaged," Homeless Reporter. Spring 1991.
Tepper. Paul S. "The Number of Homeless People in Los Angeles County -
July 1988 to June 1989." Shelter Partnership. May 1990.
West Hollywood, City of. Municipal Code, Section 4800, "Rules and
Regulations Governing City Parks."
Zane, Mayor Dennis. Homelessness in the 198Q's - A Partnership Without
Partners Written Testimonv. October 1990.
69