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SR-301-004-02 (12) CM:VR:dvm ~ounc1l Mtg. 4/26/83 Santa Monica, California 5b/ --- ~O 7"-tiz 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. 1 / )- f} APR 2 6 1983 l [- H APR 2 6 19B3 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 2 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 3 ,/ 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 4 ...-.. ~ , t C4ci e.- D'II/:.t..o~ 3p/-tPo~~./ : I 1 council Meeting: 12/10/91 CDD:CNS:JR:tfh2 h 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: - 1 - I ~..f r i (L" 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. - 2 - ;; ~ 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 - 3 - I . 3t//.-t/OY~02- The Santa Monica Task Force on Homelessness: A Call to Action DeceDlber 1991 ~--" \... - (f:;(- \.. () -/ "0/ l , I ) ~ -.- , - ! ' ~--.- t ~ t '" 'lJ... : !~ ~." 1. -! i," ~ ~ '.. --- i. --- , I "'l ....... -~ ~.... ..~ L....-< C. I ; , ~---"--I ~, , - I City of Santa Monica - , , 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 ',- , -' 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 ~ 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. 1 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. 2 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. 3 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 4 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. 5 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. 6 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. 7 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. 8 . -oa........- _ ~4__~ :~~F_ ~q~~.- ~~~-~~~?~:-:f:~~~;:!~~?-.~-"",'i~,;~". '.~~~ -~ PUBLIC HEALTH AND SAFETY -' ~ ~ ~~ ~~~~L~ ':~~~~~T~~ ~~ :..c~9"'-~"" ,~~}~~5;~~~~~~~ "'-"r..... - ~-:: ",.:- ~ . p - - ">. 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 '- f -,;- > ~","';;~'~J119~l'9"~-~-- , . .'. ~~"1;:-""""''''~~ . '; -_~.. ~ ~ : - L....if ...... - ....~_.. - .~ l': ... ~~, ~o\)~;\.~G e~~\Jtt~~ . {l~::,~~~d. ,~ ~~~~~~~P"""")'~'%.-'; . ~h~:"""?'P;:--..~;{..z:!:-J~~t~<~~~"'j:_~...:J'~""'. ~_. _ ~ ~- -j.""~ 1.~.... -J.~__....:J:',.""1i ...'t!..~...A"'2'o~~ -~l'~:~ _ .-..~_~._~-r~ ...._~ ~'?:""'.. <........._.~.;,_ "L~....~=-_':.-..l_:;.......-_~~_-. Z. -L--.-.--' _:-'~~ 5., ~.__''l_ ~-.--....~ 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. 64 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. 67 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