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