Scope of Work and Operating Framework
Overnight Warming/Cooling Location Program
Attachment A
Overnight Warming/Cooling Location Program
Scope of Work and Operating Framework
1. Program Purpose
The City’s Overnight Warming/Cooling Location Program, referred to as the “OWL Program,” is a limited, seasonal emergency response program intended to provide temporary overnight indoor refuge for unsheltered adults during periods of elevated weather-related or environmental health and safety risk.
The OWL Program is intended to reduce overnight exposure to hazardous conditions, support basic life-safety needs, and provide a defined emergency response option when conditions warrant. The program is not intended to function as year-round shelter, transitional housing, permanent housing, medical care, or a comprehensive case management program.
2. Program Goals
The goals of the OWL Program are to:
1. Provide temporary overnight indoor refuge during qualifying weather or environmental events;
2. Reduce risk of weather-related illness, injury, or death among unsheltered adults;
3. Maintain a safe, orderly, trauma-informed, and low-barrier overnight environment;
4. Provide basic supports such as seating or sleeping space, restrooms, water, light snacks or meals, dry clothing or blankets when available, and referrals to services;
5. Support coordination between the City, service providers, County partners, and other relevant stakeholders; and
6. Collect operational data to inform future City decision-making.
3. Activation Framework
3.1 County-Triggered Activations
The OWL Program may operate during County of Santa Clara Inclement Weather Alert activations, subject to City direction, facility availability, provider readiness, staffing capacity, and available funding.
County-triggered activations are intended to align the City’s response with regional emergency weather response efforts.
3.2 City-Directed Activations
In addition to County-triggered activations, the City may authorize up to 10 additional City-directed activation nights during the contract term.
City-directed activation nights may be used when local conditions, public health or safety concerns, service gaps, facility-specific considerations, or other City-identified needs warrant activation, even if County activation thresholds have not been met.
City-directed activation nights are intended to supplement, not replace, County-triggered activations.
3.3 Conditions That May Support Activation
The City may consider activation based on one or more of the following conditions:
• Cold temperatures;
• Rain or prolonged wet conditions;
• Wind or storm conditions;
• Heat;
• Smoke or poor air quality;
• Public health or safety concerns affecting unsheltered residents; • Closure, unavailability, or insufficiency of other emergency overnight options; • Anticipated unmet need in North County or Palo Alto; or • Other conditions identified by the City Manager or designee.
3.4 Activation Decision Authority
Activation decisions shall be made by the City Manager or designee, in consultation with relevant City departments and the contracted operator as needed.
The City shall provide activation notice to the operator as early as practicable. The operator shall identify the minimum lead time required to activate staffing and site operations.
4. Eligible Participants
The OWL Program shall serve unsheltered adults experiencing weather-related or environmental exposure risk.
The program shall be operated as a low-barrier emergency overnight refuge, subject to site capacity, safety requirements, and reasonable participant conduct expectations.
Unless otherwise approved by the City, the program shall serve adults age 18 and older. The operator shall establish protocols for responding to individuals who arrive with minor children, including referral to appropriate family shelter or emergency resources.
5. Facility Model
Respondents or operators may propose one or both of the following facility arrangements.
5.1 Option A — City-Provided Facility
Under this option, the City provides access to a City-controlled facility or designated space for OWL operations.
The operator is responsible for:
• Overnight staffing;
• Participant intake and oversight;
• Site setup;
• Site close-down;
• Supplies and operational materials, unless otherwise provided by the City; • Cleaning support as specified in the agreement;
• Restoration of the space to the required daytime condition; • Incident response and reporting; and
• Coordination with designated City staff.
The City may establish facility-specific requirements related to access, security systems, restrooms, storage, custodial needs, fire/life-safety requirements, insurance, and hours of use.
5.2 Option B — Provider-Provided Facility
Under this option, the operator identifies and secures a facility suitable for overnight OWL operations.
Any provider-provided facility shall be subject to City review and approval. The City may consider:
• Location and accessibility;
• Proximity to transit or known areas of need;
• Interior capacity;
• Restroom access;
• ADA accessibility or reasonable accommodation considerations; • Fire/life-safety readiness;
• Ability to activate on short notice;
• Insurance and liability requirements;
• Site control or written authorization for use;
• Neighborhood or site-specific operational considerations; • Ability to restore and secure the site after operations; and • Overall operational practicality.
The operator shall be responsible for obtaining any necessary site permissions, agreements, or approvals unless otherwise agreed to by the City.
6. Operating Hours
Unless otherwise approved by the City, OWL operations shall occur overnight.
A typical operating schedule may include:
Activity Illustrative Timeframe
Staff arrival and setup 6:00 p.m. – 7:00 p.m.
Participant check-in 7:00 p.m. – 9:00 p.m.
Overnight operations 9:00 p.m. – 6:00 a.m.
Morning departure 6:00 a.m. – 7:00 a.m.
Close-down, cleaning, and restoration 7:00 a.m. – 8:00 a.m.
Final hours shall be confirmed by the City and operator based on site requirements, participant needs, staffing availability, and activation conditions.
7. Capacity
Program capacity shall be determined by the City in consultation with the operator and shall depend on the approved site, available staffing, fire/life-safety requirements, furnishings, restroom access, and operational feasibility.
The operator shall not exceed the approved site capacity without prior City authorization.
When capacity is reached, the operator shall implement turn-away and overflow protocols approved by the City, including documentation of unmet need and referral to alternative resources when available.
8. Staffing Model
8.1 Minimum Staffing
The recommended operating model is provider-led and shall include, at minimum:
• Two awake provider staff on site during overnight operations; • One designated program coordinator or supervisor responsible for planning, scheduling, reporting, and City coordination;
• On-call supervisory support during activation hours; and • Additional staff as needed based on site conditions, capacity, participant needs, or City direction.
The City may approve alternate staffing proposals if they provide equivalent or greater operational coverage and participant support.
8.2 Staff Qualifications
Provider staff should have experience or training in one or more of the following areas:
• Homeless services;
• Trauma-informed care;
• Harm reduction;
• Verbal de-escalation;
• Crisis response;
• Working with vulnerable adults;
• Mandated reporting, if applicable;
• Emergency procedures;
• Basic first aid or CPR, preferred; and
• Cultural competency and non-discrimination practices.
8.3 Security
Dedicated security shall not be required by default for every activation night unless directed by the City or proposed by the operator and approved by the City.
Security or additional site support may be added when warranted by:
• Site-specific requirements;
• Prior incidents or credible safety concerns;
• Facility layout or access-control needs;
• Large activation events;
• Operator recommendation;
• City risk assessment; or
• City direction.
Security personnel, if used, shall coordinate with provider staff and shall not replace provider staff responsible for participant engagement, support, and de-escalation.
9. Operator Responsibilities
The operator shall be responsible for the following services and activities.
9.1 Pre-Activation Planning
The operator shall:
• Maintain an activation plan approved by the City;
• Identify staffing availability and call-in procedures; • Maintain current contact information for City and provider staff; • Participate in pre-season planning meetings;
• Conduct site walkthroughs and readiness checks as requested; • Develop site-specific operating procedures;
• Maintain required supplies; and
• Confirm procedures for setup, check-in, overnight operations, close-down, cleaning, and reporting.
9.2 Activation Response
Upon activation notice, the operator shall:
• Confirm staffing availability;
• Confirm site readiness;
• Coordinate arrival and setup logistics;
• Notify designated outreach or referral partners as directed by the City; • Prepare participant intake materials and supplies;
• Open the site during approved operating hours; and
• Maintain communication with City staff as needed.
9.3 Participant Intake and Oversight
The operator shall:
• Manage participant check-in;
• Track participant counts;
• Maintain an attendance log or equivalent record;
• Communicate participant expectations;
• Monitor participant safety and conduct;
• Provide trauma-informed engagement and verbal de-escalation; • Support reasonable accommodations when feasible;
• Maintain confidentiality of participant information;
• Document turn-aways or overflow demand; and
• Coordinate referrals to available services when appropriate.
9.4 Basic Services
The operator shall provide or coordinate basic services, which may include:
• Indoor overnight refuge;
• Restroom access;
• Water;
• Light snacks or meals, if available;
• Blankets, mats, cots, or other sleeping/resting supplies, depending on site setup; • Dry clothing, socks, hygiene supplies, or weather-related supplies, if available; • Charging access, if feasible and safe;
• Waste disposal;
• Basic wellness observation; and
• Referrals or information regarding community resources.
9.5 Site Setup and Close-Down
The operator shall:
• Set up the designated OWL space before participant arrival; • Arrange mats, cots, chairs, tables, signage, supplies, and intake area as applicable; • Maintain clear paths of travel and emergency exits;
• Monitor restrooms and common areas during operations; • Close the site at the approved time;
• Ensure all participants exit safely at close-down;
• Remove or store program supplies;
• Collect waste and personal items left behind in accordance with approved procedures; • Coordinate or perform cleaning as specified in the agreement; and • Restore the facility to the required condition for daytime use.
9.6 Incident Response
The operator shall maintain and implement incident response procedures addressing:
• Medical emergencies;
• Behavioral incidents;
• Participant conflict;
• Substance use or suspected overdose;
• Refusal to leave at close-down;
• Lost or abandoned property;
• Facility damage;
• Fire alarms or evacuation;
• Severe weather escalation;
• Calls to 911, EMS, police, or fire; and
• Notification to City staff.
The operator shall immediately call 911 for life-threatening emergencies or conditions requiring emergency response.
The operator shall notify the City of significant incidents as soon as practicable and provide written incident summaries consistent with reporting requirements.
10. Participant Expectations
The operator shall establish participant expectations that are clear, reasonable, and appropriate for a low-barrier emergency refuge setting.
Participant expectations may address:
• Respectful conduct toward staff and other participants; • No violence, threats, or harassment;
• No weapons;
• No smoking or open flames inside the facility;
• No property damage;
• Compliance with basic safety instructions;
• Respect for quiet hours;
• Use of designated areas only;
• Departure at close of operations; and
• Compliance with site-specific requirements.
Participant expectations should be applied consistently and in a manner that prioritizes safety, de- escalation, and access to emergency refuge whenever feasible.
11. Supplies and Equipment
The operator shall provide, coordinate, or manage supplies necessary for OWL operations, unless otherwise specified by the City.
Supplies may include:
• Mats, cots, blankets, or sleeping supplies;
• Disposable bedding or washable linens;
• Personal protective equipment, if needed;
• First aid kit;
• Intake forms or digital tracking tools;
• Flashlights or emergency lighting;
• Snacks, meals, and water;
• Hygiene supplies;
• Dry socks, ponchos, or clothing items, if available;
• Cleaning supplies;
• Trash bags and waste containers;
• Signage;
• Communication devices; and
• Storage bins or carts.
Laundry costs may be included in the operator’s budget, depending on the bedding model used.
12. Coordination and Communication
The operator shall coordinate with City staff before, during, and after activations.
Coordination may include:
• Pre-season planning;
• Activation confirmation;
• Daily operational updates during activation periods;
• Communication regarding capacity or turn-aways;
• Incident notification;
• Site issues or maintenance needs;
• Outreach and referral coordination;
• Post-activation debriefs; and
• Monthly reporting.
The City shall identify a primary program contact and backup contact for activation and operational coordination.
13. Data Collection and Reporting
13.1 Nightly Data
For each activation night, the operator shall collect and maintain, at minimum:
• Date of activation;
• Activation type: County-triggered or City-directed;
• Site used;
• Operating hours;
• Staffing pattern;
• Number of participants served;
• Number of unduplicated participants, if feasible;
• Number of turn-aways or individuals unable to be accommodated due to capacity; • Basic service connections or referrals provided;
• Major incidents;
• 911, EMS, police, or fire calls;
• Site issues; and
• Notes on unusual conditions or operational challenges.
13.2 Monthly Reporting
For each month in which the OWL Program is activated, the operator shall submit a monthly report to the City that includes:
• Activation dates;
• County-triggered nights versus City-directed nights;
• Cumulative use of City-directed activation nights;
• Site used;
• Staffing pattern;
• Total participant counts;
• Estimated unduplicated participants, if feasible;
• Bed-nights provided;
• Average nightly occupancy;
• Turn-aways or overflow demand;
• Referrals or service connections;
• Aggregated incident summaries;
• 911, EMS, police, or fire calls;
• Supplies used or needed;
• Operational issues;
• Recommendations for improvement; and
• Any other information reasonably requested by the City.
13.3 Participant Confidentiality
The operator shall maintain participant confidentiality and shall report data to the City in aggregate unless individual-level information is required for emergency response, legal compliance, or another purpose authorized by the City and applicable law.
14. Performance Expectations
The operator shall be expected to:
1. Respond to activation notices within the timeframe established in the agreement;
2. Maintain minimum staffing levels unless otherwise approved by the City;
3. Operate the site safely and consistently with the approved framework;
4. Maintain a trauma-informed and participant-centered environment;
5. Restore the site to required condition after each activation;
6. Track participant counts, turn-aways, and incidents;
7. Submit timely monthly reports;
8. Communicate promptly with the City regarding major operational issues; and
9. Participate in post-season evaluation.
15. Budget and Compensation
The City anticipates funding the OWL Program on a seasonal, capped, emergency-response basis.
The operator’s budget may include:
• Program coordination;
• Overnight provider staffing;
• On-call supervisory support;
• Supplies;
• Laundry;
• Food or snacks;
• Transportation of supplies;
• Site costs, if applicable;
• Insurance or administrative costs, if allowable;
• Security or additional site support, if approved by the City; and • Other direct operating costs approved by the City.
Payment structure may be based on a combination of fixed readiness costs, per-activation costs, reimbursable expenses, or another structure determined through procurement and contract negotiation.
The operator shall not exceed the approved contract amount without prior written City authorization.
16. Term
The program term shall cover the upcoming OWL season, as defined in the final agreement.
The City may include options to extend the agreement, amend the activation framework, or modify the scope of work subject to funding availability, contractor performance, operational need, and applicable City approval requirements.
17. Insurance, Compliance, and Contract Requirements
The operator shall comply with all applicable City contracting requirements, including but not limited to:
• Insurance;
• Indemnification;
• Business tax or registration requirements, if applicable; • Background check requirements, if applicable;
• Nondiscrimination requirements;
• Confidentiality requirements;
• Data reporting requirements;
• Emergency procedures;
• Facility use requirements;
• Procurement requirements; and
• Any other requirements included in the final agreement.
18. City Responsibilities
The City shall be responsible for:
• Determining activation nights;
• Identifying the City project manager or program contact; • Reviewing and approving the operating plan;
• Reviewing and approving the site arrangement;
• Providing access to City-controlled facilities, if applicable; • Coordinating with internal City departments as needed; • Reviewing reports and invoices;
• Providing policy direction on City-directed activations; • Determining whether security or additional site support is required; and • Evaluating the program after the season.
19. Post-Season Evaluation
Following the season, the operator shall participate in a post-season evaluation with City staff.
The evaluation may include review of:
• Total activation nights;
• County-triggered versus City-directed activations;
• Total bed-nights;
• Unduplicated participants served, if feasible;
• Average nightly occupancy;
• Turn-aways;
• Demographic information, if collected and appropriate to report in aggregate; • Referrals or service connections;
• Incidents;
• 911, EMS, police, or fire calls;
• Site suitability;
• Staffing adequacy;
• Cost per activation;
• Cost per bed-night;
• Participant and staff feedback, if available;
• Lessons learned; and
• Recommendations for future program design.
20. Optional RFP / Procurement Language
If this will be used in a solicitation, you may also add the following section.
Proposal Requirements
Respondents should submit a proposal that includes:
1. Organizational experience providing homeless services, emergency shelter, warming/cooling center operations, crisis response, or comparable services;
2. Proposed staffing model;
3. Proposed activation response time;
4. Proposed facility arrangement, including whether the respondent proposes a City-provided facility, provider-provided facility, or both;
5. Site information, if proposing a provider-provided facility;
6. Description of participant intake and oversight procedures;
7. Approach to trauma-informed care and de-escalation;
8. Safety and incident response protocols;
9. Approach to supplies, food, laundry, and site restoration;
10. Data collection and reporting capacity;
11. Proposed budget by activation scenario or per-night cost;
12. Insurance and compliance capacity;
13. References for similar work; and
14. Any assumptions, exclusions, or requested City support.
Criteria Considerations
Relevant experience Experience with unsheltered residents, emergency shelter, warming/cooling centers, or
crisis response
Operational readiness Ability to activate on short notice and maintain minimum staffing
Staffing model Strength of provider-led staffing, supervision, and backup support
Site feasibility Safety, accessibility, capacity, location, and readiness of proposed site, if applicable
Participant support approach Trauma-informed care, de-escalation, low- barrier access, and service connection
Safety and risk management Incident protocols, emergency procedures, communication, and site oversight
Reporting capacity Ability to track activations, participant counts, turn-aways, incidents, and referrals
Cost reasonableness Alignment of proposed budget with scope, activation assumptions, and City funding limits
Flexibility Ability to support both County-triggered and City-directed activations
Overall value Best fit for City needs, budget, operational practicality, and life-safety goals