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Home My WebLink About2011-0131 Study Session PACKET CITY OF ASHLAND CITY COUNCIL STUDY SESSION AGENDA Monday, January 31,2010 at 5:30 p.m. Pioneer Hall, 73 Winburn Way 5:30 p.m. Study Session 1. Look Ahead Review 2. Does Council have feedback on the staff suggestions on how to address the Council's goal related to homelessness? [120 Minutes] In compliance with the Americans with Disabilities Act, if you need special assistance 10 participate in this meeting, please contact the City Administrator's office at (541) 488-6002 (TTY phone number 1-800-735- 2900). Notification 72 hours prior to the meeting will enable the City to make reasonable arrangements to ensure accessibility to the meeting (28 CFR 35.102-35. 104 ADA Title I). 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E;; :I <U ~ ~ 'S 0 c c u..1Il o.e ~ <II :I ~ ~ ,~ l~~:ii 5 c' 9.: a:: .- c' ~ 0 <II ~ CI.;; ~ !:t .2' Q) (J) ... <11_ ~~~~ gs~Bt- 5 N ;:: ~ .. "6 N " '" " Q. >t .. ~ u c " o o .. - o .s. '" N ~ ~ N .s:. u ~ .. :;; ~ 8 ~ ~ C> N >t ro e ID '" 'EI '" '" CITY OF ASHLAND Council Communication Strate~ies to Address Homelessness and the Impact of Homelessness Meeting Date: January 31, 2011 Primary Staff Contact: Martha Bennett Department: Administration E-Mail: Bennettm@ashland.or.us Secondary Dept.: Police/ Community Secondary Contact: Holdernet@ashland.or.us Development Reidllalashland.or.us Approval: Martha Benne Estimated Time: 120 minutes Question: Does Council have feedback on the staff suggestions on how to address the Council's goal related to homelessness? Staff Recommendation: None Background: In 2009 the State of Oregon had the second highest number of homeless individuals per capita of any state in the country. While no accurate census exists there is reason to believe that the homeless population in the City of Ashland has increased in the past few years, perhaps faster than the rest of Oregon. Like many communities throughout Oregon, Ashland has addressed the issue of homelessness several times in the past, including an extensive discussion in 2003. After the closure of the facility run by ICCA in the spring of2008, the City Council set two goals related to addressing homelessness. The first, set in April 2009, related to conducting a survey of the homeless and a specific project related to this goal was never completed. The second, set in January 20 I 0, looked at four specific topics, including re-est'lblishing the services provided by ICCA, creating a shelter for homeless youth, and increasing provision of services in Ashland so that people do not have to travel to Medford for services. In late November 20]0, a group of homeless people and homeless advocates protested City enforcement of the ordinance that prohibits camping on public property within the City of Ashland. In December 2010, Council decided not to modify this ordinance. At the same time, the City Council recognized the problems of not having services in the community available to people who are homeless. At their annual goal setting retreat on January 15,20] I, the Ashland City Council drafted a revised goal: App~int an ad-hoc committee to make recommendations to the City Council regarding issues related to homelessness. Include major government, non-profit, and faith community partners on the committee. Request: Page lof8 r.l' CITY OF ASHLAND . Short-term recommendations no later than May I, 2011 to address the more urgent issues that confront the community . Long-term recommendations about how the way the City and partner organizations can work together. At your January 3] Study Session, staff recommends that the Council specifically: . Discuss some "short term" ideas that could be forwarded to the proposed ad-hoc committee for a recommendation prior to May]. As outlined below, there are several things that the City can do fairly quickly both to respond to homelessness and also to respond to the impact of a subset of issues that have arisen that are related to homelessness. . Discuss some of the longer term issues that the Council should ask the ad-hoc committee to discuss after they complete their May I, 20 II report. Some of the ideas that the community- including the City but also including many other possible providers - may want to consider will require new programs, new services, 'and possibly new organizations. Staff has made a list of some of the ideas Council could ask the task force to discuss. . Discuss the composition of the ad-hoc task force with a goal of appointing the membership quickly, possibly as soon as the February 15,2011 meeting. Context Homelessness has many dimensions, and some of the people who are homeless by definition are "invisible" in the community. That is, there are many people who are homeless for a short time who move in with relatives and friends, live in their cars, or "couch surf' to get by. Additionally, the vast majority of people who are homeless are homeless for a very short period of'time and are only homeless once in their lives. The most visible homeless people tend to be people who are chronically homeless, some of whom have lived in Ashland for many years and some of whom are transient. Finally, some of the homel~ss people are transient and travel back to Ashland every year. The issue of homes people who are transient is compounded by the fact that staff has been informed by both the members of the homeless community and homeless advocates that Ashland is well known destination throughout the country as a good place to live if you are homeless. We also have to deal with the issue that most of the services available to assist the homeless in Jackson County are located in Medford. Inevitably, one of the issues that arises when discussing homelessness is the issue of panhandling. Panhandling is legally protected under the United States and Oregon Constitutions. While not all people who are homeless are involved in panhandling and similarly, not all of the people who panhandle are homeless, dver the last year city staff have seen a dramatic increase in complaints from residents, visitors 'and business owners regarding the behavior of people who are panhandling in the downtown or in the parks. These complaints include aggressive pan handling, making lewd comments to people on the street, blocking sidewalks and doorways, being loud, trespassing, using and being under the influence of drugs and alcohol in public places, urinating in public, littering and leaving trash Page 2 of8 r.l' C I 'T Y 0 F ASHLAND and various other forms of disorderly conduct. The Police Department has written citations for violations oflaws but many of the activities that generate complaints are not a violation of an existing law. The public perception of this problem is compounded by a small number of people who generate a large number of citations. Several homeless individuals were cited over 20 times last year and one was cited 28 times. One person, who has been cited 27 times, has been heard bragging about owing the City thousands of dollars in fines. The top ten violators over the last year have] 52 citations between ,them. Nine of those ten identify themselves as being homeless. Staff believes that it is difficult, either in the short term or the long term, to talk about issues related to homelessness without discussing the behaviors that generate complaints, such as panhandling. Similarly, the City cannot discuss the behaviors without looking for ways to address services and circwnstances ofhomelessness. Additionally, both homelessness and the behaviors people experience downtown and in the parks have degrees of severity, and it helps to think about those degrees to identify how the City can work on these issues. A very rudimentary conceptual illustration is attached to this Council communication to illustrate this idea. In order to support the council goals related to homelessness staff has contacted several other agencies from around the country with similar problems and has found several strategies that appear to have been effective in assisting the homeless with services or reducing homelessness or problems in the community related to homelessness. These strategies are identified as being either long term or short term in nature. Short term strategies are those that staff believe can be implemented between now and next summer using existing community resources. Long term strategies are those strategies that would require more time to implement or would require indentifying additional resource providers. Short Term Strateev Options Staff recommends that Council ask the ad-hoc committee to look at the following options and make recommendations to the Council about whether AsWand ought to adopt them prior to May I: Campgrounds: Several cities around the country have opened free camping areas for the homeless or stopped enforcing camping bans in certain areas. There is no evidence that opening a camping area will in anyway reduce homeless in an area. The purpose of a camping area is to give the homeless a legal place to camp. Campgrounds that are regulated tend to be underutilized. Campgrounds that are not regulated tend to have problems with crime and sanitation issues. Communities near the campgrounds are generally opposed to their presence. Albany and Corvallis are examples of Oregon cities that have unsuccessfully tried camping areas for the homeless in the recent past. The most successful homeless camping area in the Oregon would appear to be Dignity Village near Portland. This program is different in many ways from other homeless camping areas. Dignity Village is approximately eight miles from downtown in a fairly isolated area and has a limited but apparently permanent population who are allowed to build structures on the site. Dignity Village is controlled by a village council that makes the rules that all residents have to follow and operates as a nonprofit organization. Campgrounds are listed as a short term strategy since the City could either designate a campground or suspend the existing camping ban in a specific area fairly rapidly. If the City decided to look at Page30f8 r.l' CITY OF ASHLAND developing a Dignity Village type project or dedicated the time to develop a campground strategy that addressed the problems that other communities have had with the homeless free campground areas we would need to look at that as a long term strategy. It is unlikely we would be able to implement that type of program without additional time and resources. Cost of any camping area would vary greatly depending on Council's direction. Car camps: Lane County has a program of allowing homeless people with vehicles to park overnight in 29 public and private parking areas around the county. This program assists only homeless people with vehicles. The program has been in place for 12 years and although it has expanded there is still a shortage of spaces and about 60 people on the waiting list for a space every night. All public and private sites have to have on site sanitation and the property owner is responsible for cleaning up garbage and litter daily. Cost of this program would appear to be limited to providing sanitation and clean up on public parking lots designated for use. Exclusionary Areas. Several cities in Oregon, most notably Portland, Eugene and McMinnville have exclusionary areas. People who receive multiple citations are in effect trespassed for a limited time from a specific area and can be arrested if found in that area without a lawful reason during the exclusionary period. This would mirror what we presently do to repeat offenders in the parks. This type of ordinance would reduce the problems we are having with repeat offenders in the downtown area. Different cities have different criteria for exclusion and different methods for a person to appeal an exclusionary order. The Council would need to determine criteria, the length of time, and an appeal process for Ashland. The only cost of this program would be staff time and posting of signs in the exclusionary area. Panhandling collection boxes. Several cities around the country have significantly reduced panhandling and complaints related to panhandling by putting donation boxes for homeless services in areas that are heavily impacted by panhandling. The donation boxes are usually reconditioned parking meters and have signs on them requesting the people help the homeless get off of the streets by donating to rehabilitation services rather than encouraging them to remain homeless by directly giving them money. The City of Laguna Beach was the city that we found doing this that was most like Ashland. While they have not seen a change in the number of homeless people in the city, the number of people panhandling and complaints about panhandling has been reduced 60% to 80% and almost eliminated in areas around the donation boxes. Like all of the agencies we are aware of, Laguna Beach uses parking meters to accept the donations. Since most parking in the city is metered most people have quarters available to put on the donation meters. In a city like Ashland where people are not prepared for metered parking we would need to design some other type of secure container to accept donations. Cities involved in this type of program usually partner with a local nonprofit to use the money collected to help the homeless. The City of Laguna Beach partners with a local homeless shelter. When staff looked into the possibility of doing this in the past they were unable to find a great deal of interest from local community based organizations for being involved in this program. The only cost of this program would be designing, building, and installing the donation containers. Limits on sidewalk usage. Cities from around the country have passed ordinances limiting the ability of people to sit or lie on sidewalks in certain parts of the city. This has the effect of reducing loitering and panhandling in those areas. The ninth circuit court of appeals has upheld Seattle's ordinance as being constitutional. Portland had a similar ordinance that was struck down by the Oregon courts. Page 4 of8 r.l' CITY OF ASHLAND Portland has revised that ordinance but it has not yet been challenged under Oregon law. The only direct cost would be to place signs in the downtown area. However, until the Portland law is challenged in court we could be at risk of expenses related to litigation of the ordinance. Community outreach workers. Santa Cruz, CA has full time employees that constantly patrol the streets of the city in an effort to try and assist the homeless find services which help them get off the streets and become self supporting. While Santa Cruz is larger than Ashland they are very similar in that its economy is largely based on higher education and tourism. Santa Cruz claims to have seen a significant reduction in the number ofhomelessness and related issues, such as panhandling, since implementing this program. This program was started concurrent with a new city ordinance that limits panhandling on city streets and it is impossible to tell if the community outreach program or the new ordinance is responsible for the change. Santa Cruz spends over $300,000 a year to support this program. Most of that money is donated by the business community. San Francisco and Portland have similar programs. rl Community Assistance Program. Fontana California has partnered with a local church to hire a part time person to coordinate all public and private resources for anyone in town that needs temporary assistance. This includes homeless people that are interested in getting off of the streets and people that have homes who are in danger of becoming homeless. Fontana is much larger and has a very different demography than Ashland or Santa Cruz but is similar to Ashland in that most area homeless services are concentrated in the county seat which is teq. miles from Fontana. This program is more comprehensive in that it assists people that are not homeless in addition to those already homeless, but it is not anywhere near as aggressive in outreaching to the homeless community as the program in Santa Cruz. Total cost of the program in approximately $40,000 a year. It should be noted that both of these programs concentrate on people in transition and rehabilitation of. the homeless and do not supply relief maintenance type services to people that desire to remain homeless. Lon!!: Term Stratel!:V Options In working on a longer-term strategy, staffrecommends the task force be asked to first evaluate homeless population and identify the needs/issues specific to the Ashland homeless population. This would include evaluate existing local and regional resources and develop a plan to better utilize existing resources without duplication of services. After completing this assessment, staff recommends that the ad-hoc committee evaluate the feasibility of developing long term resources for homeless populations such as: Drop-in Center. Similar to what was formerly operated by ICCA, a Drop-in Center where homeless populations can gain access to resources and social services (with the potential for out stationing of service staff from the County and from those service providers located in Medford). Drop-in Centers can be as simple as a warming station that offers little in the way of services or be as broad as the Salvation Army's Urban Rest Stop that provides hot meals, shower and laundry facilities, or even message phone, computer and mail access. Often Drop-in Centers have the less obvious effect of Page 5 of8 r.l' CITY OF ASHLAND providing community connections for the homeless population by providing a safe, comfortable, judgment free, space in which to engage with volunteer community members and one another in. Permanent Supportive Housing Programs. Long-term community-based housing that has supportive services for homeless individuals with disabilities. This type of supportive housing enables special needs populations to live as independently as possible in a permanent setting. The supportive services may be provided by the organization managing the housing or coordinated by the applicant and provided by other public or private service agencies. Permanent housing can be provided by other public or private service agencies. Permanent housing can be provided in one structure or several structures at one site or in multiple structures at scattered sites. Supportive Housing Programs help people move from homelessness to independent living, they help to create a stable living environment that allows people to increase their skills and their income, and gain more control over the decisions that affect their lives. Housing First Model. A Housing First approach rests on two central premises: ]) Re-housing should be the central goal of our work with people experiencing homelessness; and 2) Providing housing assistance and follow-up case management services after a family or individual is housed can significantly reduce the amount of time people spend in homelessness. Case management ensures individuals and families have a source of income through employment and lor public benefits, identifies service needs before the move into permanent housing, and works with families or adults after the move into permanent housing to help solve problems that may arise that threaten their tenancy including difficulties sustaining housing or interacting with the landlord and to connect families with community-based services to meet long term support/service needs. Transitional Housing Program- (HUD Definition). A project that has its purpose facilitating the movement of homeless individuals and families to permanent housing within a reasonable amount of time (usually 24 months) Transitional Housing Programs usually are paired with supportive services which assist participants in transitioning from the streets in to stable (permanent) housing through case management. Most programs require residents to participate in a drug and alcohol program, offer job search/preparedness training, budget and life skills training, and a parenting component. Single-Room Occupancy (SRO) Program. A residential property that includes multiple single room dwelling units. Each unit is for occupancy by a single eligible individual. The unit need not but may contain food preparation or sanitary facilities, or both. SRO units can assist homeless populations move into the permanent housing phase, and/or offer special populations affordable, efficient independent living opportunities. Ad Hoc Committee Task Force Staff recommends that the Council appoint a fairly small task force given the timeline proposed. Staff proposes a group with 9 to ]2 members. Staff recommends the Mayor and Council appoint people who represent the following groups: Page 60r8 r.l' CITY OF ASHLAND Intcrrst/Stakl'llOldrr (; roll p Exal1lpll's ] or 2 members representing current "Cold CongregationalistlPresbyterianl Unitarian Weather Shelter" providers Churches Ashland CERT I member representing free meal providers Peace House/ Uncle Foods Diner Sunday meal in park Community Works meal for youth I member representing outreach to homeless Community Works youth outreach . St. Vincent DePaul ] or 2 members representing retail and visitor Downtown retailers oriented business communitv Visitor/convention businesses 2 or 3 citizens at large Should represent a diversity of viewpoints I or 2 members representing government human County Mental Health? service providers State of Oregon I or 2 members representing non-profits that Could be drug and alcohol treatment, transitional provide transitional services to the homeless housing, case management, etc. I member representing a non-profit or Variety of possibilities here. government service that provides services to , prevent people from becoming homeless Staff Support Staff support will come from Administration. Community Development and Police will participate as needed Staff requests that Council discuss this general composition for the Committee at the study session. Staff also recommends that Councilors who have specific people in mind for serving on the committee forward the names of people to either the Mayor or the City Administrator for consideration. Assuming Council wants to proceed with appointing the Committee at your February 15 meeting, recommendations should be made to the Mayor no later than February 7. Staff will also bring back a proposed charge for the Ad-hoc committee that would include: . The specific short-term strategies that Council wants the committee to examine prior to May I. . The more general long-term approach Council would like considered by the Committee as part of the long-range recommendations that would be completed by December 31. Related City Policies: None Council Options: Council may: Provide feedback on the composition and membership ofthe proposed ad-hoc committee Provide feedback on any or all of the issues that staffrecommends be discussed as part of the "short term" action plan. Page 70f8 r.l' CITY OF ASHLAND Provide feedback on any or all of the longer-term topics that would be discussed Add other options both short-term and long-term that you would like to'see discussed. Potential Motions: None. This is a study session , Attachments: Homelessness spectrum Survey of services previously provided by ICCA Page 80f8 r.l' '" '" Q) = '" '" Q) - Q) S Q -= ...... Q = Q .. ..... .. "0 = Q l:.I ...... Q .e- - :: l:.I !.=: ...... .. "0 ....... .e- .. l. Q) .. Q) rJ) "" .::: .... ;:l "" :> u .S! 0 .9 "" ~ - r;/) :<= 0; .e " .: Q c u - '" '" en " C C. " 0 - .= ::s .S! ~ en '" E '" E 1: ." 0 " c ~ E '" '" " " ~ .c 0 E '" - u -" ~ .c .~ 0 '" " .:: u <E -<: """ - '" u C E '" ~ " t:: > ~'" '" .9 " '" '" " '" " .;: u '" '" '" u .: " '" '" '" u u " .9 '" u '" ::s " '" u ." '" -", vi 'E oil " '" ." " - '" " c c :z " .S! " ~ '0. ...; c 1: '" vi c OJ) ~ .c ~ " c " '" " E '" <E -<: u u .;; " ~ '" OJ) "'" ~ '" ~ " " 0 '" c > ,.9 '" -5 E .~ en en "" .... ",,"" ...."" 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OJ :> OJ C/l ~ 'fJ '" OJ .....l ICCA services previously provided Message Phone Mailing Address Phones/computers for housing/job activities Bus tokens Laundry facilities Shower facilities Toiletries Haircuts (vouchers for haircuts) Cleaning Supplies Laundry Supplies Food Clothing Bedding Prophylactics Baby Supplies House wares Counseling (housing, employment, mental health, drug and alcohol) Advocacy Job search assistance Housing placement assistance Life Skills Training Resource referral Outreach activities Drop-in Day use Center (for extreme weather) Services no longer available in Ashland Message Phone Mailing Address Phones for housing/job activities Counseling (housing, employment, mental health, drug and alcohol) Advocacy Job search assistance Housing placement assistance Life Skills training Drop-in Day use Center (for extreme weather) Services currently in existence in Ashland Job search assistance (South Valley DHS) Resource referral (ACCESS/South Valley DHS) Toiletries (ACCESS/South Valley DHS) Phones/computers for housing/job activities (South Valley DHS) Bus tokens (police station) Laundry (Monday only)' Shower (Monday only)' Hot Meal Monday morning-Congregational Church-UCC Tuesday evening-Peace House- Uncle Foods Diner-Methodist church Wednesday Afternoon-Community Works-Pioneer Hall Thursday Af!ernoon-Comrnunity dinner-4PM Lithia Park Gazebo Friday Afternoon-Community dinner-4PM Lithia Park Gazebo Sunday afternoon-Sons of Thunder-Lithia Park Gazebo Last Wednesday of every rnonth'Presbyterian church Food (Ashland Community Food Bank-Monday -Friday, ACCESS, Inc. Wednesday) Clothing (Recycle Center, Evo's Coffee, Downtown Laundromat, ACCESS) Bedding (Recycle Center, Evo's Coffee, Downtown Laundromat, ACCESS) Emergency Shelter (CERT/churches) 20 below and every Sunday night Emergency Rental Assistance (St. Vincent) Emergency Utility Assistance (St. Vincent) Homeless Teen outreach (Community works/streetwise) 'Some services which are available may be insufficient to meet the needs.