[Hpn] City of Santa Monica's Staff Report

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Can be found at:

pen.ci.santa-monica.ca.us/cityclerk/council/agendas/2002/20020924/s20020924=
0
9-A.htm


City Council Meeting 9-24-02=A0=A0=A0=A0=A0

=A0

=A0

=A0

=A0

TO:=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 Mayor and City Council

=A0

FROM:=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 City Staff

=A0

SUBJECT:=A0=A0=A0=A0 Transmittal of the FY 2001-02 Annual Review of the City=3Ds
Coordinated Plan for Homeless Services, Recommendation to Accept the Report=
,
Hold a Public Hearing, and Recommendation to Introduce for First Reading
Ordinances Specifying Requirements for the Distribution of Food on Public
Property and Prohibiting Sitting or Lying in Downtown Doorways During Late
Night and Early Morning Hours

=A0

=A0

=A0

=A0

Introduction

=A0

This report transmits the FY 2001-02 Annual Review of the City=3Ds Coordinate=
d
Plan for Homeless Services and recommends the City Council hold a public
hearing on the Plan pursuant to Municipal Code Section 2.69.030.=A0 (See
Attachment 1.)=A0=A0 Additionally, pursuant to Council direction on August 13,
2002, this report recommends approval of two ordinances, one clarifying
permitting requirements for distributing food on public property and the
other prohibiting lying or sitting in Downtown doorways during late night
and early morning hours.

=A0

Background



The City has a deep and longstanding commitment to helping homeless people.=
=A0
Over a decade ago, it sparked an intense community debate about the best wa=
y
to express that commitment while, at the same time, protecting the general
safety and welfare by, among other things, keeping City parks and other
public spaces clean, safe, attractive and available to all.

=A0

At that time, the City was receiving many complaints about the impacts of
homelessness upon the community.=A0 City residents and members of the busines=
s
community complained that the increasing numbers of people living in the
parks, streets and other public spaces were making those spaces unsafe for
everyone (including the homeless), adversely impacting their appearance, an=
d
monopolizing their use. Some community members complained that the City=3Ds
generous social service programs and liberal policies, along with its good
weather and desirable and readily accessible location, were attracting more
homeless people to the City than the City could accommodate and assist.

=A0

To help address this issue and advance the debate, the City Council
established a Homeless Task Force, comprised of community members with
varying expertise and viewpoints,=A0 to discuss and recommend municipal
policies on homeless services.=A0 That task force worked long and hard.=A0
Ultimately, in 1991, the task force produced a report which recommended a
particular approach.=A0 Specifically, the task force recommended providing
long-term services linked to housing and employment, rather than stopgap
measures such as stand alone feeding programs.=A0 The Council approved the
report in 1991.=A0=A0=A0=20

=A0



In 1994, an initiative measure addressing these concerns was circulated and
submitted to the City.=A0 The City Council considered and adopted the
measure.=A0 It mandates various means of balancing the special needs of the
City=3Ds homeless residents with the entire community=3Ds need to preserve the
quality of public spaces and life in the City.=A0 Included among them are an
annual review of homeless services through a report and public hearing on:
(1)=A0 the impact of the City=3Ds homeless population on other City residents;
(2) the delivery of services to homeless persons by the City and other
agencies; (3) the effectiveness and cost of those services; and (4) any
changes which should be made to improve services delivery and reduce
negative impacts upon the community as a whole.=A0 Shortly after the
initiative was adopted, the Council also addressed concerns about private
projects distributing food in public parks by incorporating state and count=
y
health standards into the Municipal Code, thereby clarifying their
applicability to food distributions in Santa Monica.=A0=A0=A0=A0

=A0



The Homeless Task Force Report, the 1994 initiative and other laws, adopted
to maintain the balance between the special needs of the homeless and the
general welfare, establish current City policy on homeless services.=A0 That
policy recognizes that living in the streets is neither safe nor healthy an=
d
should not be perpetuated or facilitated.=A0 Therefore,=A0 the City provides a
continuum of care intended to help homeless people improve their lives by
making the transition into housing and employment.=A0 Consistent with this
policy, the City=A0 does not support short-term, stopgap efforts, including
freestanding food distributions on public property.=A0 The City=3Ds experience
is that food distributions do not help homeless people change their lives.=A0
Moreover, the distributions=A0 have significant negative impacts upon parks
and other public spaces and appear to attract significant numbers of
homeless people to the City without helping solve their problems.=A0 Of
course, the City recognizes that=A0 viewpoints on this issue differ
substantially.=A0 The City respects the viewpoints and commitment of those wh=
o
work in the distribution projects.=A0 Moreover, the City respects the right o=
f
private and nonprofit groups within the City to distribute food on their ow=
n
property in a manner consistent with applicable law.=A0

=A0

In the years since these City policies were adopted, the number of homeless
people has risen every year throughout the nation.=A0 In 2001, the U.S.
Conference of Mayors=3D annual AReport on Hunger and Homeless@ indicated a 25=
%
increase nationwide in the number of people seeking food and shelter over
the previous year.=A0 This national trend is reflected in our local
experience.=A0 Over the last three years, residents responding to the annual
City Resident Survey have identified Ahomelessness@ as the City=3Ds most
pressing issue.=A0 During that same time period, 10% of all citizen initiated
calls for police service relate to homeless activity, even though homeless
people probably comprise slightly over 1% of the City=3Ds population.

=A0

Most recently, local agencies report an estimated 25-30% increase in the
number of homeless people seeking services during the last year.=A0=A0 This fac=
t
may result, in part, from=A0 the declining economy.=A0 Deficiencies in the
mental health care system are also a significant contributing factor.=A0
Police personnel suggest that the increase may also result from the County=3D=
s
current policy of incarcerating only felony suspects and thereby allowing
chronic misdemeanants to remain atlarge.=A0 Whatever the cause, the increase
is evident.



=A0

Additionally residents, members of the business community and visitors have
expressed growing concerns and frustrations about the increased impact of
homelessness on the community.=A0=A0 These impacts result from various
circumstances, including large groups gathering regularly in the parks for
food distributions and thereby monopolizing park space, persons soiling and
trashing doorways in the Downtown which they use as a campsite, aggressive
panhandling and exhibiting anti-social or threatening behaviors.=A0 Residents
complain that the parks are no longer a shared resource.=A0 Members of the
business community complain of adverse economic impacts.=A0

=A0

There are increasing adverse impacts on homeless people as well.=A0 The Polic=
e
Department reports an increase in crimes committed by homeless people
against other homeless people.=A0 For instance, during the last nine months,
there have been three assaults in this category which were extremely
violent.

=A0

The controversy about food distributions in the parks has been particularly
heated. Many complain that food distributions by private organizations are
attracting more and more homeless people to Santa Monica, that the City=3Ds
service system cannot bear this load,=A0 that the parks are being unfairly
monopolized, and that other park users are being driven from the parks.=A0
Others assert that the food distributions are charitable endeavors which
should=A0 be supported, rather than restricted.

=A0



Police personnel and the City=3Ds Homeless Services Coordinator confirm that
food distribution programs have increased significantly in the recent past.=
=A0
At present, there are between twenty and thirty separate groups which
regularly distribute food in Santa Monica on City property.=A0 Almost all of
them are from outside the City, and many travel significant distances from
communities including Manhattan Beach, South Central Los Angeles and even
Calabasas and Oxnard.=A0 Many of these groups distribute food in City parks
several times a week.=A0 They=A0 feed as many as 300 persons at a time on a
scheduled basis. This attracts large crowds to City parks to await the
arrival of the food and then linger after it is distributed.=A0 Grounds
keepers, park rangers and police personnel report significant problems with
litter, damage to landscaping, and disturbances of the peace.=A0 These food
distribution projects tend to confine their activities to parks in or near
the downtown area -- Palisades, Reed and Memorial.=A0 In contrast, most of th=
e
City parks in solely residential neighborhoods are not impacted.=A0 However,
the impacts upon these three parks, park users and related City resources
are significant.

=A0



Besides impacting the parks and their availability, the food distribution
programs pose safety hazards.=A0 The County Health Department has notified th=
e
City that the projects create a significant safety risk to people receiving
food because they usually do not comply with statewide standards governing
preparing and serving food to the public. Those standards are administered
by the County and enforceable through a County-issued permit.=A0 They control
both the manner and=A0 frequency of food distributions to the public.=A0 As par=
t
of the application process, City approval is required for the specific
location of the proposed distribution.=A0 Moreover, state law makes failure t=
o
obtain a permit or comply with permitting requirements a misdemeanor.

=A0

The Police and Community and Cultural Services Departments have taken
various actions in recent years and months to address these growing concern=
s
and problems.=A0 For example, the Police Department allocates resources to
keeping the parks safe and ensuring that all park users conform their
conduct to the law.=A0 Police personnel working in the=A0 Homeless Liaison
Program, commonly known as HLP,=A0 provide referrals to City funded programs
which can provide assistance.=A0 Park Rangers and Community Service Officers
are assigned to patrol parks, monitor violations, take crime and incident
reports, and participate=A0 in City and community efforts to solve problems
associated with homelessness.=A0 Community and Cultural Services staff member=
s
work to keep the parks clean, neat, inviting and available to all segments
of the community as a shared resource.=A0 However, personnel from both
departments report that the demands placed on their resources by the feedin=
g
projects and by the increased number of homeless persons presently in the
City exceed present and foreseeable capabilities.=A0=A0

=A0



On August 13, 2002, the City Council heard public testimony on concerns
relating to homeless services, food distribution on public property, people
camping in Downtown doorways near the distribution points, and related
matters.=A0 After the hearing and deliberation, the City Council directed
staff to develop and recommend methods, including ordinances, to limit the
number, size and frequency of food distribution programs held in public
parks and spaces.=A0 Council also directed staff to make recommendations on
related aspects that allow for the reasonable provision of social services.=
=A0
Council requested that these recommendations be included with this annual
review of homeless services.

=A0

Notice of this public hearing has been sent to City Boards and Commissions,
the Chamber of Commerce, the school district, Santa Monica College, the Los
Angeles Homeless Services Authority, City-funded organizations, local
hospitals, and other community groups.=A0 Additionally, advertisements were
placed in five local newspapers.

=A0

Discussion

The annual review of the City=3Ds Coordinated Plan for Homeless Services and
Related Issues is attached to this report.=A0 It details the City=3Ds efforts,
over the last year, to implement its goal of delivering services which will
effectively assist homeless people to obtain greater self-sufficiency
through a continuum of care.=A0=A0 As the report explains, the model works.=A0
Over 2500 homeless people received supportive services.=A0 Over 750 people
received shelter and assistance with formulating plans for
self-sufficiency.=A0 Approximately 450 homeless people, who were unemployed
upon entry to the system, found and maintained employment.=A0 Moreover,
notwithstanding the shrinking supply of low-income housing on the Westside,
almost 250 homeless people were assisted into permanent housing.=A0 However,
the provision of this successful continuum of care is costly; and, as the
report also explains, there are limits on what the City can do to address
the nationwide problem of homelessness.

=A0



In response to the Council=3Ds directive that staff propose new solutions to
presently existing problems, staff has formulated a list of suggestions for
steps the City can take to address various aspects of the current
situation.=A0 They are as follows:

=A0

(1) Assist the County=3Ds efforts to ensure compliance with state laws
regulating the distribution of food.=A0=A0 Members of the Police Department
began working more closely with the County early this year.=A0 When County
health personnel indicated that they needed more personnel to enforce
current state laws applicable to food distribution, police personnel began
evaluating the option of training City personnel to assist.

=A0

(2) Redirect Community Development Grant Funding beginning FY 2003-04 to
ensure City-funded homeless service agencies provide daily nutritious meals
to program participants.=A0 Presently, City agencies provide no food on
weekends, except to residents of shelters.=A0=A0 It is anticipated that
providing healthy meals each day will encourage homeless individuals who ar=
e
not in the network to enroll in agencies and will fill any gap which may be
left as a result of regulating private food distribution=A0 projects.

=A0

(3) Increase the police presence on the Promenade and in City parks.=A0 This
will be done by shifting existing resources and sustaining an effort to
field a full complement of Police Officers and Park Rangers.

=A0



(4) Increase educational opportunities for all concerned community members,
including homeless people and merchants, so that they will be more aware of
applicable laws and procedures and more aware of community services and Cit=
y
policies.=A0 This could be done through community meetings and by providing
information at homeless access centers about=A0 the City=3Ds expectations for
appropriate conduct in parks and other public spaces.

=A0

In addition, in response to City Council direction, City staff has prepared
two proposed ordinances.=A0 The first specifies permitting requirements for
distributing food on public property.=A0 This ordinance is consistent with th=
e
City=3Ds present policy of regulating food distribution programs by requiring
compliance with health standards.=A0 The ordinance does not prohibit food
distribution or assembly in public spaces.=A0 Moreover, it does not impose ne=
w
standards.=A0 Rather, it clarifies that persons wishing to distribute meals
and food in parks and on the City Hall lawn must comply with state health
standards and with the City=3Ds Community Events Law.=A0 The ordinance also
clarifies that public sidewalks and streets cannot be used for food
distribution without City authorization and would add a remedy of criminal
enforcement for that prohibition.

=A0



It is not yet clear exactly what impact enforcement of current state health
standards would=A0 have upon the number or frequency of food distributions in
Santa Monica.=A0 Presumably, enforcement will diminish the number of projects
and the number of distributions by each project=A0 because, among other
things,=A0 project participants will be unwilling or unable to comply with th=
e
state and county requirements. Those projects which opt to meet the
requirements will be safer.=A0=A0=A0 Once current laws are effectively enforced,=A0=
=A0
City staff and the Council will be better able to determine whether
additional restrictions are advisable.=A0 If so, the Council may wish to
consider lowering the threshold for the Community Event Permit requirement
in order to ensure appropriate balance in park usage.=A0=A0=A0

=A0

The second ordinance prohibits sitting or lying down in Downtown doorways.=A0
It=A0 would serve to protect private property when owners and tenants are not
present to protect it themselves.=A0 It would also protect public health by
reducing sanitation risks and preserve aesthetics.=A0 Additionally, it would
eliminate the hazards attendant upon people sleeping in those unsafe
locations.=A0 The ordinance would not prohibit anyone from sitting or lying i=
n
a doorway during a medical emergency.=A0 Moreover, it would not prohibit
anyone from entering or standing in a doorway.=A0 If adopted, this ordinance
may be challenged as preempted by the state trespass laws.=A0 However, legal
staff believes that the ordinance would most likely be upheld because it
fills a significant gap in state law; and existing appellate authority
indicates that cities may regulate within the gaps of state trespass law.=A0=A0

=A0

Financial/Budget Impact

On June 19, 2001, the City Council approved City funding of homeless
programs for FY 2001-02 in the amount of $1,826,722.=A0=A0 These amounts do not
include the HUD Supportive Housing Program grant because the City acts only
as a pass-through agent for those funds.=A0 This represents level City fundin=
g
for homeless services.=A0 Enforcement of the new ordinances will be addressed
with budgeted resources, coupled with an effort to maintain a full
complement of Police Officers and Park Rangers.

=A0



Recommendation

City staff recommends that the City Council accept this report, hold a
public hearing to gain input on the FY 2001-02 Annual Review of the City=3Ds
Coordinated Plan for Homeless Services, and introduce the attached proposed
ordinances for first reading.

=A0=A0=20

PREPARED BY:=A0=A0=A0=A0=A0=A0 James T. Butts, Jr., Chief of Police

=A0Barbara Stinchfield, Director of Community and Cultural Services

Julie Rusk, Human Services Manager

Tracy Scruggs, Human Services Supervisor

Joel Schwartz, Homeless Services Coordinator
=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 Marsha Jones Moutrie, Cit=
y
Attorney

Susan E. McCarthy, City Manager

=A0

=A0

ATTACHMENTS:=A0=A0=A0=A0=A0 (which can be viewed from Santa Monica=B9s Web)

=A0

1.=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 FY 2001-02 Annual Review of the City=B9s Coordinated Plan
for Homeless Services

=A0

2.=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 Letters: Input from the Public and Service Providers
(Not available electronically)

=A0

3.=A0=A0=A0=A0=A0=A0=A0=A0 Ordinance Adding Section 4.08.097 to the Santa Monica Municipal
Code Prohibiting Sitting or Lying in Doorways In the Downtown Between Eleve=
n
p.m. and Seven a.m.

=A0

4. =A0=A0=A0=A0=A0=A0=A0 Ordinance Specifying Requirements for the Outdoor=A0 Distribution
of Food to =A0the Public

=A0



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<HTML>
<HEAD>
<TITLE>City of Santa Monica's Staff Report</TITLE>
</HEAD>
<BODY>
<FONT SIZE=3D"1"><FONT FACE=3D"Charcoal">Can be found at:<BR>
<BR>
pen.ci.santa-monica.ca.us/cityclerk/council/agendas/2002/20020924/s20020924=
09-A.htm<BR>
</FONT></FONT><FONT FACE=3D"Charcoal"><BR>
<BR>
City Council Meeting 9-24-02=A0=A0=A0=A0=A0 <BR>
<BR>
=A0<BR>
<BR>
=A0<BR>
<BR>
=A0<BR>
<BR>
=A0<BR>
<BR>
TO:=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 Mayor and City Council<BR>
<BR>
=A0<BR>
<BR>
FROM:=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 City Staff<BR>
<BR>
=A0<BR>
<BR>
SUBJECT:=A0=A0=A0=A0 Transmittal of the FY 2001-02 Annual Review of the City=3Ds Coor=
dinated Plan for Homeless Services, Recommendation to Accept the Report, Hol=
d a Public Hearing, and Recommendation to Introduce for First Reading Ordina=
nces Specifying Requirements for the Distribution of Food on Public Property=
 and Prohibiting Sitting or Lying in Downtown Doorways During Late Night and=
 Early Morning Hours<BR>
<BR>
=A0<BR>
<BR>
=A0<BR>
<BR>
=A0<BR>
<BR>
=A0<BR>
<BR>
Introduction<BR>
<BR>
=A0<BR>
<BR>
This report transmits the FY 2001-02 Annual Review of the City=3Ds Coordinate=
d Plan for Homeless Services and recommends the City Council hold a public h=
earing on the Plan pursuant to Municipal Code Section 2.69.030.=A0 (See Attach=
ment 1.)=A0=A0 Additionally, pursuant to Council direction on August 13, 2002, t=
his report recommends approval of two ordinances, one clarifying permitting =
requirements for distributing food on public property and the other prohibit=
ing lying or sitting in Downtown doorways during late night and early mornin=
g hours. <BR>
<BR>
=A0<BR>
<BR>
Background<BR>
<BR>
<BR>
<BR>
The City has a deep and longstanding commitment to helping homeless people.=
=A0 Over a decade ago, it sparked an intense community debate about the best w=
ay to express that commitment while, at the same time, protecting the genera=
l safety and welfare by, among other things, keeping City parks and other pu=
blic spaces clean, safe, attractive and available to all.<BR>
<BR>
=A0<BR>
<BR>
At that time, the City was receiving many complaints about the impacts of h=
omelessness upon the community.=A0 City residents and members of the business =
community complained that the increasing numbers of people living in the par=
ks, streets and other public spaces were making those spaces unsafe for ever=
yone (including the homeless), adversely impacting their appearance, and mon=
opolizing their use. Some community members complained that the City=3Ds gener=
ous social service programs and liberal policies, along with its good weathe=
r and desirable and readily accessible location, were attracting more homele=
ss people to the City than the City could accommodate and assist.<BR>
<BR>
=A0<BR>
<BR>
To help address this issue and advance the debate, the City Council establi=
shed a Homeless Task Force, comprised of community members with varying expe=
rtise and viewpoints,=A0 to discuss and recommend municipal policies on homele=
ss services.=A0 That task force worked long and hard.=A0 Ultimately, in 1991, th=
e task force produced a report which recommended a particular approach.=A0 Spe=
cifically, the task force recommended providing long-term services linked to=
 housing and employment, rather than stopgap measures such as stand alone fe=
eding programs.=A0 The Council approved the report in 1991.=A0=A0=A0 <BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
In 1994, an initiative measure addressing these concerns was circulated and=
 submitted to the City.=A0 The City Council considered and adopted the measure=
.=A0 It mandates various means of balancing the special needs of the City=3Ds ho=
meless residents with the entire community=3Ds need to preserve the quality of=
 public spaces and life in the City.=A0 Included among them are an annual revi=
ew of homeless services through a report and public hearing on: (1)=A0 the imp=
act of the City=3Ds homeless population on other City residents; (2) the deliv=
ery of services to homeless persons by the City and other agencies; (3) the =
effectiveness and cost of those services; and (4) any changes which should b=
e made to improve services delivery and reduce negative impacts upon the com=
munity as a whole.=A0 Shortly after the initiative was adopted, the Council al=
so addressed concerns about private projects distributing food in public par=
ks by incorporating state and county health standards into the Municipal Cod=
e, thereby clarifying their applicability to food distributions in Santa Mon=
ica.=A0=A0=A0=A0 <BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
The Homeless Task Force Report, the 1994 initiative and other laws, adopted=
 to maintain the balance between the special needs of the homeless and the g=
eneral welfare, establish current City policy on homeless services.=A0 That po=
licy recognizes that living in the streets is neither safe nor healthy and s=
hould not be perpetuated or facilitated.=A0 Therefore,=A0 the City provides a co=
ntinuum of care intended to help homeless people improve their lives by maki=
ng the transition into housing and employment.=A0 Consistent with this policy,=
 the City=A0 does not support short-term, stopgap efforts, including freestand=
ing food distributions on public property.=A0 The City=3Ds experience is that fo=
od distributions do not help homeless people change their lives.=A0 Moreover, =
the distributions=A0 have significant negative impacts upon parks and other pu=
blic spaces and appear to attract significant numbers of homeless people to =
the City without helping solve their problems.=A0 Of course, the City recogniz=
es that=A0 viewpoints on this issue differ substantially.=A0 The City respects t=
he viewpoints and commitment of those who work in the distribution projects.=
=A0 Moreover, the City respects the right of private and nonprofit groups with=
in the City to distribute food on their own property in a manner consistent =
with applicable law.=A0 <BR>
<BR>
=A0<BR>
<BR>
In the years since these City policies were adopted, the number of homeless=
 people has risen every year throughout the nation.=A0 In 2001, the U.S. Confe=
rence of Mayors=3D annual AReport on Hunger and Homeless@ indicated a 25% incr=
ease nationwide in the number of people seeking food and shelter over the pr=
evious year.=A0 This national trend is reflected in our local experience.=A0 Ove=
r the last three years, residents responding to the annual City Resident Sur=
vey have identified Ahomelessness@ as the City=3Ds most pressing issue.=A0 Durin=
g that same time period, 10% of all citizen initiated calls for police servi=
ce relate to homeless activity, even though homeless people probably compris=
e slightly over 1% of the City=3Ds population.<BR>
<BR>
=A0<BR>
<BR>
Most recently, local agencies report an estimated 25-30% increase in the nu=
mber of homeless people seeking services during the last year.=A0=A0 This fact m=
ay result, in part, from=A0 the declining economy.=A0 Deficiencies in the mental=
 health care system are also a significant contributing factor.=A0 Police pers=
onnel suggest that the increase may also result from the County=3Ds current po=
licy of incarcerating only felony suspects and thereby allowing chronic misd=
emeanants to remain atlarge.=A0 Whatever the cause, the increase is evident.<B=
R>
<BR>
<BR>
<BR>
=A0<BR>
<BR>
Additionally residents, members of the business community and visitors have=
 expressed growing concerns and frustrations about the increased impact of h=
omelessness on the community.=A0=A0 These impacts result from various circumstan=
ces, including large groups gathering regularly in the parks for food distri=
butions and thereby monopolizing park space, persons soiling and trashing do=
orways in the Downtown which they use as a campsite, aggressive panhandling =
and exhibiting anti-social or threatening behaviors.=A0 Residents complain tha=
t the parks are no longer a shared resource.=A0 Members of the business commun=
ity complain of adverse economic impacts.=A0 <BR>
<BR>
=A0<BR>
<BR>
There are increasing adverse impacts on homeless people as well.=A0 The Polic=
e Department reports an increase in crimes committed by homeless people agai=
nst other homeless people.=A0 For instance, during the last nine months, there=
 have been three assaults in this category which were extremely violent.<BR>
<BR>
=A0<BR>
<BR>
The controversy about food distributions in the parks has been particularly=
 heated. Many complain that food distributions by private organizations are =
attracting more and more homeless people to Santa Monica, that the City=3Ds se=
rvice system cannot bear this load,=A0 that the parks are being unfairly monop=
olized, and that other park users are being driven from the parks.=A0 Others a=
ssert that the food distributions are charitable endeavors which should=A0 be =
supported, rather than restricted.<BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
Police personnel and the City=3Ds Homeless Services Coordinator confirm that =
food distribution programs have increased significantly in the recent past.=A0=
 At present, there are between twenty and thirty separate groups which regul=
arly distribute food in Santa Monica on City property.=A0 Almost all of them a=
re from outside the City, and many travel significant distances from communi=
ties including Manhattan Beach, South Central Los Angeles and even Calabasas=
 and Oxnard.=A0 Many of these groups distribute food in City parks several tim=
es a week.=A0 They=A0 feed as many as 300 persons at a time on a scheduled basis=
. This attracts large crowds to City parks to await the arrival of the food =
and then linger after it is distributed.=A0 Grounds keepers, park rangers and =
police personnel report significant problems with litter, damage to landscap=
ing, and disturbances of the peace.=A0 These food distribution projects tend t=
o confine their activities to parks in or near the downtown area -- Palisade=
s, Reed and Memorial.=A0 In contrast, most of the City parks in solely residen=
tial neighborhoods are not impacted.=A0 However, the impacts upon these three =
parks, park users and related City resources are significant.<BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
Besides impacting the parks and their availability, the food distribution p=
rograms pose safety hazards.=A0 The County Health Department has notified the =
City that the projects create a significant safety risk to people receiving =
food because they usually do not comply with statewide standards governing p=
reparing and serving food to the public. Those standards are administered by=
 the County and enforceable through a County-issued permit.=A0 They control bo=
th the manner and=A0 frequency of food distributions to the public.=A0 As part o=
f the application process, City approval is required for the specific locati=
on of the proposed distribution.=A0 Moreover, state law makes failure to obtai=
n a permit or comply with permitting requirements a misdemeanor.<BR>
<BR>
=A0<BR>
<BR>
The Police and Community and Cultural Services Departments have taken vario=
us actions in recent years and months to address these growing concerns and =
problems.=A0 For example, the Police Department allocates resources to keeping=
 the parks safe and ensuring that all park users conform their conduct to th=
e law.=A0 Police personnel working in the=A0 Homeless Liaison Program, commonly =
known as HLP,=A0 provide referrals to City funded programs which can provide a=
ssistance.=A0 Park Rangers and Community Service Officers are assigned to patr=
ol parks, monitor violations, take crime and incident reports, and participa=
te=A0 in City and community efforts to solve problems associated with homeless=
ness.=A0 Community and Cultural Services staff members work to keep the parks =
clean, neat, inviting and available to all segments of the community as a sh=
ared resource.=A0 However, personnel from both departments report that the dem=
ands placed on their resources by the feeding projects and by the increased =
number of homeless persons presently in the City exceed present and foreseea=
ble capabilities.=A0=A0 <BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
On August 13, 2002, the City Council heard public testimony on concerns rel=
ating to homeless services, food distribution on public property, people cam=
ping in Downtown doorways near the distribution points, and related matters.=
=A0 After the hearing and deliberation, the City Council directed staff to dev=
elop and recommend methods, including ordinances, to limit the number, size =
and frequency of food distribution programs held in public parks and spaces.=
=A0 Council also directed staff to make recommendations on related aspects tha=
t allow for the reasonable provision of social services.=A0 Council requested =
that these recommendations be included with this annual review of homeless s=
ervices.<BR>
<BR>
=A0<BR>
<BR>
Notice of this public hearing has been sent to City Boards and Commissions,=
 the Chamber of Commerce, the school district, Santa Monica College, the Los=
 Angeles Homeless Services Authority, City-funded organizations, local hospi=
tals, and other community groups.=A0 Additionally, advertisements were placed =
in five local newspapers.<BR>
<BR>
=A0<BR>
<BR>
Discussion<BR>
<BR>
The annual review of the City=3Ds Coordinated Plan for Homeless Services and =
Related Issues is attached to this report.=A0 It details the City=3Ds efforts, o=
ver the last year, to implement its goal of delivering services which will e=
ffectively assist homeless people to obtain greater self-sufficiency through=
 a continuum of care.=A0=A0 As the report explains, the model works.=A0 Over 2500 =
homeless people received supportive services.=A0 Over 750 people received shel=
ter and assistance with formulating plans for self-sufficiency.=A0 Approximate=
ly 450 homeless people, who were unemployed upon entry to the system, found =
and maintained employment.=A0 Moreover, notwithstanding the shrinking supply o=
f low-income housing on the Westside, almost 250 homeless people were assist=
ed into permanent housing.=A0 However, the provision of this successful contin=
uum of care is costly; and, as the report also explains, there are limits on=
 what the City can do to address the nationwide problem of homelessness. <BR=
>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
In response to the Council=3Ds directive that staff propose new solutions to =
presently existing problems, staff has formulated a list of suggestions for =
steps the City can take to address various aspects of the current situation.=
=A0 They are as follows:<BR>
<BR>
=A0<BR>
<BR>
(1) Assist the County=3Ds efforts to ensure compliance with state laws regula=
ting the distribution of food.=A0=A0 Members of the Police Department began work=
ing more closely with the County early this year.=A0 When County health person=
nel indicated that they needed more personnel to enforce current state laws =
applicable to food distribution, police personnel began evaluating the optio=
n of training City personnel to assist. <BR>
<BR>
=A0<BR>
<BR>
(2) Redirect Community Development Grant Funding beginning FY 2003-04 to en=
sure City-funded homeless service agencies provide daily nutritious meals to=
 program participants.=A0 Presently, City agencies provide no food on weekends=
, except to residents of shelters.=A0=A0 It is anticipated that providing health=
y meals each day will encourage homeless individuals who are not in the netw=
ork to enroll in agencies and will fill any gap which may be left as a resul=
t of regulating private food distribution=A0 projects.<BR>
<BR>
=A0<BR>
<BR>
(3) Increase the police presence on the Promenade and in City parks.=A0 This =
will be done by shifting existing resources and sustaining an effort to fiel=
d a full complement of Police Officers and Park Rangers.<BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
(4) Increase educational opportunities for all concerned community members,=
 including homeless people and merchants, so that they will be more aware of=
 applicable laws and procedures and more aware of community services and Cit=
y policies.=A0 This could be done through community meetings and by providing =
information at homeless access centers about=A0 the City=3Ds expectations for ap=
propriate conduct in parks and other public spaces.<BR>
<BR>
=A0<BR>
<BR>
In addition, in response to City Council direction, City staff has prepared=
 two proposed ordinances.=A0 The first specifies permitting requirements for d=
istributing food on public property.=A0 This ordinance is consistent with the =
City=3Ds present policy of regulating food distribution programs by requiring =
compliance with health standards.=A0 The ordinance does not prohibit food dist=
ribution or assembly in public spaces.=A0 Moreover, it does not impose new sta=
ndards.=A0 Rather, it clarifies that persons wishing to distribute meals and f=
ood in parks and on the City Hall lawn must comply with state health standar=
ds and with the City=3Ds Community Events Law.=A0 The ordinance also clarifies t=
hat public sidewalks and streets cannot be used for food distribution withou=
t City authorization and would add a remedy of criminal enforcement for that=
 prohibition.<BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
It is not yet clear exactly what impact enforcement of current state health=
 standards would=A0 have upon the number or frequency of food distributions in=
 Santa Monica.=A0 Presumably, enforcement will diminish the number of projects=
 and the number of distributions by each project=A0 because, among other thing=
s,=A0 project participants will be unwilling or unable to comply with the stat=
e and county requirements. Those projects which opt to meet the requirements=
 will be safer.=A0=A0=A0 Once current laws are effectively enforced,=A0=A0 City staff =
and the Council will be better able to determine whether additional restrict=
ions are advisable.=A0 If so, the Council may wish to consider lowering the th=
reshold for the Community Event Permit requirement in order to ensure approp=
riate balance in park usage.=A0=A0=A0 <BR>
<BR>
=A0<BR>
<BR>
The second ordinance prohibits sitting or lying down in Downtown doorways.=A0=
 It=A0 would serve to protect private property when owners and tenants are not=
 present to protect it themselves.=A0 It would also protect public health by r=
educing sanitation risks and preserve aesthetics.=A0 Additionally, it would el=
iminate the hazards attendant upon people sleeping in those unsafe locations=
.=A0 The ordinance would not prohibit anyone from sitting or lying in a doorwa=
y during a medical emergency.=A0 Moreover, it would not prohibit anyone from e=
ntering or standing in a doorway.=A0 If adopted, this ordinance may be challen=
ged as preempted by the state trespass laws.=A0 However, legal staff believes =
that the ordinance would most likely be upheld because it fills a significan=
t gap in state law; and existing appellate authority indicates that cities m=
ay regulate within the gaps of state trespass law.=A0=A0 <BR>
<BR>
=A0<BR>
<BR>
Financial/Budget Impact<BR>
<BR>
On June 19, 2001, the City Council approved City funding of homeless progra=
ms for FY 2001-02 in the amount of $1,826,722.=A0=A0 These amounts do not includ=
e the HUD Supportive Housing Program grant because the City acts only as a p=
ass-through agent for those funds.=A0 This represents level City funding for h=
omeless services.=A0 Enforcement of the new ordinances will be addressed with =
budgeted resources, coupled with an effort to maintain a full complement of =
Police Officers and Park Rangers.<BR>
<BR>
=A0<BR>
<BR>
<BR>
<BR>
Recommendation<BR>
<BR>
City staff recommends that the City Council accept this report, hold a publ=
ic hearing to gain input on the FY 2001-02 Annual Review of the City=3Ds Coord=
inated Plan for Homeless Services, and introduce the attached proposed ordin=
ances for first reading.<BR>
<BR>
=A0=A0 <BR>
<BR>
PREPARED BY:=A0=A0=A0=A0=A0=A0 James T. Butts, Jr., Chief of Police<BR>
<BR>
=A0Barbara Stinchfield, Director of Community and Cultural Services <BR>
<BR>
Julie Rusk, Human Services Manager<BR>
<BR>
Tracy Scruggs, Human Services Supervisor<BR>
<BR>
Joel Schwartz, Homeless Services Coordinator =A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=
=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 Marsha Jones Moutrie, City Attorney<BR>
<BR>
Susan E. McCarthy, City Manager<BR>
<BR>
=A0<BR>
<BR>
=A0<BR>
<BR>
ATTACHMENTS:=A0=A0=A0=A0=A0 (which can be viewed from Santa Monica&#8217;s Web)<BR>
<BR>
=A0<BR>
<BR>
1.=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 FY 2001-02 Annual Review of the City&#8217;s Coordinate=
d Plan for Homeless Services<BR>
<BR>
=A0<BR>
<BR>
2.=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 Letters: Input from the Public and Service Providers (N=
ot available electronically)<BR>
<BR>
=A0<BR>
<BR>
3.=A0=A0=A0=A0=A0=A0=A0=A0 Ordinance Adding Section 4.08.097 to the Santa Monica Municipal =
Code Prohibiting Sitting or Lying in Doorways In the Downtown Between Eleven=
 p.m. and Seven a.m.<BR>
<BR>
=A0<BR>
<BR>
4. =A0=A0=A0=A0=A0=A0=A0 Ordinance Specifying Requirements for the Outdoor=A0 Distribution =
of Food to =A0the Public<BR>
<BR>
=A0<BR>
<BR>
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