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HomeMy WebLinkAboutD-3 Staff Report - Homeless Housing Resource CenterSCHEDULED ITEM D-3 TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL VIA: SERGIO GONZALEZ, CITY MANAGER FROM: LUCY DEMIRJIAN, PROJECT MANAGER DATE: SEPTEMBER 18, 2023 SUBJECT: UPDATE AND DIRECTION REGARDING LOCAL RESOURCE CENTER TO PROVIDE SHELTER AND SERVICES FOR THE UNHOUSED POPULATION BACKGROUND: The City of Azusa has experienced an exponential increase in homeless population over the last decade. Since the opening of the Gold Line in 2016, and Metro’s end of line policy, the number of individuals experiencing homelessness have significantly increased, as evidenced by the annual point in time count conducted by the Los Angeles Homeless Services Authority (LAHSA). In September of 2018, the 9th Circuit Court of Appeals issued a unanimous decision in Martin v. City of Boise, finding that the City of Boise's prohibition against sleeping in public violates the U.S. Constitution’s Eighth Amendment prohibition on cruel and unusual punishment when the homeless individuals have no access to alternative shelters. The Court held that the Eighth Amendment prohibits enforcement if such ordinances criminalize homeless individuals for sleeping outside when they have no access to alternative shelters. This decision greatly impacted the enforcement of similar state laws, such as California Penal Code section 647(e) prohibiting illegal lodging. The City has dedicated significant resources to curb the impacts of the homelessness crisis and continues to invest in innovative strategies. Despite the efforts of city departments who provide outreach and resources alongside regional partners, the situation persists and requires additional action. As the Court decision restricts the City’s ability to enforce local ordinances prohibiting camping without offering shelter beds as an option to the local homeless population, the City has directed staff to explore development of a local interim housing solution. Approved City Council September 18, 2023 Update on Local Resource Center for Unhoused Population September 18, 2023 Page 2 The City adopted Resolution 2023-C27 on June 5, 2023, declaring the existence of a local emergency and has continued the declaration as it expeditiously works toward locally viable solutions. The emergency resolution allows the City to take necessary action in response to impacts of the escalating homelessness crisis and provides greater ability to quickly enter contacts for specialized services. On June 26, 2023, the City Council received a report on the continuing homeless crisis in the City. The City Council discussed the need for a local interim housing project and considered three unimproved City-owned properties. The sites were evaluated for access to basic needs, availability of utilities, on-site parking, and neighborhood context. The property located at 975 W. Foothill Blvd. was determined to be the most appropriate for development of a temporary navigation center for the local homeless population. The City Council directed staff to move forward with additional analysis including conceptual design and estimated costs The proposed interim housing facility, Azusa Resource Center or “ARC,” is intended to serve as a bridge between residents experiencing street homelessness and placement in permanent supportive housing. The project will also provide support services, including specialists in mental health and substance use disorders and employment assistance. After exploring various housing solutions in the region, staff is prepared to make several recommendations on the project, including selection of vendors for the dwelling units and support services provider. RECOMMENDATIONS: Staff recommends that the City Council take the following actions: 1) Provide direction on the development of a site plan and amenities for the Azusa Resource Center; and 2) Authorize City Manager to enter into necessary agreement(s) to develop the project, including procurement of prefabricated modular units, construction of project site, agreement for on-site support services and operations; and 3) Authorize City Manager to negotiate an agreement for additional outreach services for an initial one-year term, pending discussion and allocation of available funds. 4) Authorize FY 2023/24 budget allocation of $1,954,843 in remaining American Rescue Plan Act funds. 5) Authorize staff to procced with a Letter of Intent and application for the City’s allocation of Permanent Local Housing Allocation funds up to $423,286 from Los Angeles County Development Authority. 6) Authorize staff to continue working with SGVCOG and SGVRHT on securing additional funding for the project. Update on Local Resource Center for Unhoused Population September 18, 2023 Page 3 ANALYSIS: Bridge housing is a type of temporary housing that provides immediate assistance to individuals experiencing homelessness. Bridge housing offers 24/7 security and on-site services such as case management and housing placement to help residents stabilize their lives and move on to permanent housing. Bridge housing provides immediate health and mental health services for participants. More commonly known as “tiny homes,” the interim housing units provide participants with safety and privacy in a non-congregate shelter setting with common areas and spaces for other services. In collaboration with the San Gabriel Valley Council of Governments (SGVCOG) and technical assistance from SRK Architects, a conceptual design has been prepared for consideration. A total of 25 units have been included in the design. By placing the Resource Center in the proposed location, outreach workers can begin to identify unsheltered individuals in the area and offer them interim housing and services locally. Development of Proposed Site The proposed site, 975 W. Foothill Blvd, is located in an industrial area of the City, within one mile of public transit stops including the Gold Line Station. The proposed project will only include the northern portion of the property, leaving at-least 50% of the 1.52-acre site undeveloped. A site survey is underway to further inform the design and capabilities of the site. Further refining of the design will be necessary as the site is prepared and pre-fabricated housing units are ordered. The proposed manufacturer is recommended because of the innovative and durable quality of their product. LifeArk is a Los-Angeles based manufacturer that creates modular structures made of post-consumer recycled plastic and HCD-approved for use as shelter, interim or permanent housing. Each 8 ft X 8 ft module can be used as a shelter or multiple modules can be configured together to create larger living spaces, community or meeting spaces. Modules can also be used for bathroom, shower, and laundry facilities. The units are capable of providing weather resistant shelter that could be built on site, easily moved, and includes HVAC and outlet for charging devices. Additional consideration was given to the site preparation necessary for quick implementation and, as this location is temporary, minimal impact to the property for future development. Alternative emergency dwelling units were explored, however, considering spacing required per fire safety codes and challenges with incremental whether, an investment in more durable material is recommended. The site work is minimal as the structures are raised to allow for utilities, reducing costs for undergrounding utilities. With the LifeArk modular structures, the City would be able to extend the Program, move the units to another site, or store the units for use at a later date. The 25 units will be mainly single modules, with a few larger ADA units. The California building code generally requires 70 square feet per shelter, however the declaration of Update on Local Resource Center for Unhoused Population September 18, 2023 Page 4 emergency allows the City to go below that. Each single unit will be 54 square feet and include a bed, shelves, HVAC, door, and an outlet. Site plan and elevations will continue to be developed with the goal to create a welcoming space for participants and to provide privacy and security for participants and the surrounding community. In addition to input from the Council, staff will conduct public outreach meetings to provide the community with opportunities to comment on the design and contribute to the development of policies for the Resource Center. Site Amenities and Program Guidelines Based on feedback received from other programs, additional considerations were given to site amenities in order to remove common barrier to the acceptance of shelter.  The project is designed as non-congregate housing, providing each participant with privacy and security that is not available while unsheltered or in traditional congregate shelter settings.  To encourage a community environment outdoor communal dining space will be shared amongst participants.  The site will be secured with 24/7 onsite personnel.  An area for pets will be designated in the design, to allow participants to keep their pets for the duration of their stay.  Shared amenities including restrooms, showers and laundry, are included as a practical measure in order to better maintain these facilities.  A designated area with individual lockers and bike racks will be made available to participants to secure their belongings. This will allow participants to keep personal belongings at the site but out of the units to prevent overcrowding and unhygienic conditions.  The site will also provide three daily meals which will be prepared offsite and delivered ready to eat. Program Guidelines and Participant Selection In accordance with best practice for harm reduction shared by existing bridge housing and tiny home sites, the City will develop comprehensive program guidelines to include a code of conduct for participants.  Participants will be admitted with minimal, “low- threshold” requirements so that chronic and vulnerable homeless people can easily enter and remain in shelter until they can find permanent housing.  However, there will be a screening process- no felons with open warrants, persons on the sex offender registry, or registered arsonist will be allowed.  Prospective participants must be able to perform all aspects of their care meeting their Activities of Daily Living (ADLs).  The proposed site would not allow any illicit or illegal substances or possessions on site.  Referrals will be accepted from partner agencies and service providers in the City, with primary preference for local clients.  Participants will be required to check in and out with shelter staff or security. A curfew will also be instituted. Update on Local Resource Center for Unhoused Population September 18, 2023 Page 5  In order to decrease the impact to the surrounding neighborhood, walk-in services will not be permitted and there will be strict no loitering policies.  All participants must review and sign an agreement prior to entry, and must follow all rules and maintain appropriate behavior with consideration for all other participants. Supportive Services and Operations The proposed site will provide wrap-around services for participants including case management to connect participants to housing, health services, job training, and other supportive services to meet each participant’s needs. Participants will be selected through direct street outreach efforts targeted to individuals (18 and older) and couples experiencing homelessness in the local community. The target population for the proposed project was based on data from the City’s 2021 survey of homeless individuals (conducted by CityNet) and more current demographic information collected through interactions by service providers and outreach teams. For families with children experiencing homelessness, alternative resources are available. The City, through the Library’s Neighborhood Connections program, provides financial assistance to individuals and families at risk of homelessness as part of prevention and diversion efforts. The supportive service provider for the proposed Resource Center will manage the facility, including subcontracting for meal services, janitorial services, and coordinate referrals to and services from other providers. The selected provider will develop a housing plan for each participant to connect them to permanent housing options including affordable housing, permanent supportive housing, family reunification, and other available housing options. The goal is to connect each participant to permanent housing in 90 days or less. The SGVCOG has assisted with selection of service provider in a similar project with other cities. Staff recommends utilizing the same provider based on their experience with managing bridge housing and ability to form multi-sector collaborations to provide homeless services. Additional Support and Outreach The resource center will be a humane method of temporary housing that offers stability to individuals while they connect to long-term housing. Not all people experiencing homelessness are ready or willing to participate in housing services. In order to refer “housing ready” individuals to the Resource Center, additional outreach services are needed to support existing efforts. It is important to note that acceptance into programs and treatment is voluntary, and unsheltered individuals cannot be forced against their will. In order to be willing to accept services, continuing contact and follow-ups are necessary for someone to be ready to take that next step. The City currently receives once a week outreach services from the L.A. CADA (Los Angeles Centers for Alcohol and Drug Abuse) through the SGVCOG contract. L.A. CADA’s multidisciplinary team conducts proactive outreach throughout the City; offers assistance to individuals, such as family reunification, substance treatment, housing solutions, and mental health services. In the past year L.A. CADA has successfully engaged with numerous individuals experiencing homelessness, assisted with placement into treatment programs or bridge shelters, along with case management, permanent housing referrals, job development, mental health Update on Local Resource Center for Unhoused Population September 18, 2023 Page 6 linkage, legal support, and basic necessities such as food, water and clothing. City staff in the Library, Code Enforcement and Police Departments refer individuals in need of assistance to the Outreach Team on Wednesdays and work together to identify areas in the City with increased transient activity. Staff recommends an additional contract with L.A. CADA to expand services for a minimum of three days per week, in line with service levels in surrounding cities. As the City is experiencing an increase in the homeless population, additional service days are necessary to meet the demands. Regular interactions with the community’s unhoused is important in order to better understand the unsheltered population in the City. Building relationships and connecting at a personal level helps foster trust. The more contact outreach teams have with individuals, the more willing they are to accept services. The L.A. CADA team will work with City staff in determining which unhoused individuals meet the criteria for interim housing. NEXT STEPS: With City Council’s direction, staff will continue to work with SRK Architects to finalize project plans and elevations. Public outreach meetings will be scheduled immediately to respond to community concerns, solicit input, and provide details on the project design. Once the full scope of the project is determined, LifeArk can begin to manufacture and assemble the modules while the project site is prepared. The site work will require asphalt or concrete foundation, utility access points, light landscaping, and fencing for privacy and security. The site work will be completed with a combination of in-house and on-call staff to minimize costs. When the prefabricated modules are delivered, a portion of assembly will be done on site. Interior finishes and hook-ups will follow. Furniture and equipment will also be installed. Community input is critical in achieving a successful project. Of utmost importance is maintaining safety for nearby residents and businesses. The City will host informational meetings in collaboration with SGVCOG and selected vendors. The meetings will include current efforts to address homelessness in the City and the intent of the Azusa Resource Center project. As additional site plans are developed, details on proposed services, safety measures, and site elevations will also be presented. Additional meetings will focus on how community organizations, including businesses, faith- based organizations and volunteers, can contribute their services to the local shelter. While the site is being developed, operational policies will be established based on best practices and input received. This will inform service providers in identifying suitable participants for the program. Upon completion of the project, the community will be invited to tour the Resource Center prior to occupancy by participants. Update on Local Resource Center for Unhoused Population September 18, 2023 Page 7 FISCAL IMPACT: Rough Order Magnitude (ROM) costs are detailed below. Preliminarily, ROM costs are estimated at $1,548,000 for construction and $625,000 for the first-year operations (ongoing). Supplemental costs for outreach services are estimated at $200,000 annually. Staff will track all expenditures associated with the project and will provide a report to Council on contracts with final costs and funding sources. TASK ROM FUNDING SOURCE Site Evaluation and Concept Design --- SGVCOG Site Survey $18,000 ARPA Site Preparation -grading and improvement (as needed) -concrete or asphalt slab -utility connections (water, sewer, power) -trash enclosure -ADA ramps $130,000 ARPA LifeArk Modular Units -modular units for participants, sanitation and laundry units, office/meeting units for staff and security -including delivery and installation $1,300,000 ARPA Landscaping $50,000 ARPA Fencing $50,000 ARPA Furnishings, supplies, other essential items TBD Potential donations Support Services Contract -case management services -site operations -prepared meals -maintenance and janitorial -24/7 security $625,000 annually (at $25,000 per bed) Combination of ARPA and other grant funds Total Construction Cost $1,548,000 Operational Cost (first year) $625,000 SUPPLEMENTAL Outreach Services (L.A. CADA) $200,000 annually PLHA The City Council earmarked $1,954,843 from the American Recovery Plan Act (ARPA) State and Local Fiscal Recovery Funds for a local resource center. These funds must be designated by December 2024 and fully expended by December 2026, thus, Staff will utilize 100% of the $1.9M and budget it for FY 2023/24 in account 54-00-000-000 in project #11024A upon Council approval of the recommended actions. Additionally, Permanent Local Housing Allocation (PLHA) funds are available through Los Angeles County Development Authority to implement eligible affordable housing programs. PLHA funds may be used for development and/or operations of navigation centers and emergency shelters, and to provide rapid rehousing and supportive/case management services. Update on Local Resource Center for Unhoused Population September 18, 2023 Page 8 The City of Azusa has been allocated $423,286 in PLHA funds, which Staff will apply to use for eligible expenses. If approved, Staff will budget these funds in 28-10-110-002 in project #11024A. The City is also pursuing funding from various sources, including the San Gabriel Valley Regional Housing Trust (SGVRHT) Affordable Housing and Homeless Programs Innovation Program, which can provide up to $25,000 per bed to assist with operational costs. Finally, grant funding is available to cities for the creation of housing through the County and State Budget. Staff continues to explore grant funding opportunities for the construction and ongoing operation of the proposed local navigation center and support programs. Prepared b y: Reviewed and Approved by: Lucy Demirjian Sergio Gonzalez Project Manager City Manager