March 24, 2026
City Manager's Office
DATE: March 24, 2026
TO: Mayor Martinez and Members of the City Council
FROM:
Shasa Curl, City Manager
LaShonda White, Deputy City Manager – Community
Service
Emily Combs, Finance Director
Patrick Seals, Administrative Chief
SUBJECT:
Charter Article 15 Review – Richmond Fund for Children
and Youth Review
FINANCIAL IMPACT: Per Article 15, Section 11 of the Richmond City Charter, the Richmond Fund for Children and Youth (RFCY or
Fund) is scheduled for reauthorization at the end of
Fiscal Year (FY) 2027-28. Should the City Council
choose to reauthorize Article 15 without amendment, the Fund would continue to receive an annual allocation
equal to 3 percent of unrestricted General Fund
revenues, totaling approximately $99 million over the FY 2028-29 through FY 2037-38 period (ten-year period).
RFCY currently receives an annual transfer-in from the
General Fund to support its Charter-mandated activities (Account String: 13371018-391994).
PREVIOUS COUNCIL
ACTION:
January 22, 2019
July 16, 2019
STATEMENT OF THE
ISSUE:
Article 15 of the Richmond City Charter authorizes the
Richmond Fund for Children and Youth and establishes
the process and timing for its extension. Pursuant to
Section 11, the City Council may extend the provisions of Article 15 for an additional ten-year term by majority vote and is required to act by December 31, 2027.
Accordingly, the City Council will receive a presentation AGENDA
REPORT
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on Article 15 and provide policy direction regarding the renewal provisions for the Richmond Fund for Children
and Youth.
RECOMMENDED ACTION:
RECEIVE a presentation on Article 15 of the Charter
regarding the Richmond Fund for Children and Youth and
PROVIDE DIRECTION regarding renewal provisions and
options – City Manager’s Office/Finance Department
(Shasa Curl/Patrick Seals 510-620-6512/Emily
Combs/Antonio Banuelos 510-620-6542).
DISCUSSION:
Background
In June 2018, Richmond voters approved of the Richmond Kids’ First Initiative: The Richmond Fund for Children and Youth Act, adding Article 15 to the City Charter and formally establishing the Richmond Fund for Children and Youth (RFCY or Fund) (Attachment 1). The measure created a dedicated funding stream to expand and strengthen services for children, youth, and transitional-aged young adults living in Richmond and unincorporated North Richmond.
The initiative was rooted in equity, responding to long-standing disparities in access to education, health, safety, and opportunity that disproportionately affect low-income families, communities of color, immigrant households, LGBTQ+ youth, and youth impacted by trauma and system involvement.
The RFCY is supported by voter-approved revenue measures that increased the City’s unrestricted general-purpose revenues and enabled long-term investment in children and youth. In 2018, Richmond voters approved Measures E and K, supporting youth services, with 76.6 percent and 67.4 percent in favor, respectively, and Measure H, increasing the real estate transfer tax, with 64.9 percent voting yes:
Measure E established the Richmond Fund for Children and Youth and embedded equity into the City Charter by prioritizing populations most impacted by harm, disinvestment, and barriers to services (Attachment 2). Measure K expanded the City’s general fund base, helping make it possible to invest in prevention-oriented and culturally responsive services (Attachment 3). Measure H strengthened general fund revenues through the documentary transfer tax, supporting community-based programs that serve youth and families facing economic and housing instability (Attachment 4).
Together, these measures reflect a community mandate to reduce disparities and improve outcomes for historically underserved children and youth.
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Richmond Fund for Children and Youth Major Components
The Fund’s purpose is to ensure that Richmond’s children, youth, and young adults are healthy, supported, successful in school, and able to thrive in safe and stable families and communities—particularly those who face systemic barriers to opportunity.
Description of the Department
The Charter created the Richmond Department of Children and Youth (RDCY or Department) within the City Manager’s Office to administer the RFCY. The Department ensures that equity is embedded in all aspects of implementation by:
Managing competitive grant cycles that prioritize organizations rooted in and reflective of the communities they serve.
Supporting the Oversight Board’s diverse, youth-inclusive membership. Coordinating needs assessments that elevate voices of marginalized families and young people.
Monitoring performance to ensure investments advance equitable outcomes.
RFCY Oversight Board
The Oversight Board consists of 15 members, with 7-8 seats held for youth ages 15-24.
The purpose of the Oversight Board is to help guide funding for youth-serving organizations by developing policies, monitoring, and ensuring that the Fund is managed in a manner accountable to the community.
General Fund Allocations
The Charter outlines a phased funding structure and clear implementation benchmarks:
Initial infrastructure funding in FY 2018–19 and FY 2019–20 to launch the Department of Children and Youth and develop the first Strategic Investment Plan with a strong equity lens. There was no allocation in FY 2020-21. A gradual increase in annual allocations from 1 percent, 2 percent, and 3 percent of the City’s unrestricted general purpose revenues respectively during FY 2021–22, FY 2022-23, and FY 2023–24. The 3 percent allocation remains until FY 2027-2028 (Table 1).
A requirement that the Fund’s effectiveness be evaluated before the end of its initial ten-year term and presented for renewal or revision.
These timelines were designed to support long-term, stable investment in communities that have historically experienced underinvestment. These funds have enabled sustained investment in neighborhoods and populations experiencing the greatest inequities in health, education, safety, and economic stability.
Percentage for Grants, Administration, and Evaluation
The Charter establishes clear limits to ensure the majority of RFCY funds support direct services:
March 24, 2026
A maximum of 10 percent may be used for administration, including staffing, infrastructure, and contract management needed to support community-based organizations serving high-need populations. Up to 10 percent of the administrative portion may be used for City overhead.
A maximum of 5 percent may be used for independent evaluation to measure outcomes for priority youth groups.
The remaining 85 percent is used to support eligible public agencies and non-profit community-based organizations for services provided to children and youth from birth to 18 years old and their caregivers, and disconnected transitional-aged young adults from ages 18 to 24 years
This structure ensures RFCY investments remain focused on programs and outcomes for young people facing the greatest barriers.
Community Needs Assessments
Consistent with Charter requirements, RDCY, in partnership with the RFCY Oversight Board, conducted a comprehensive Community Needs Assessments (CNAs) to inform funding priorities and ensure that investments respond to the lived experiences and needs of Richmond’s children, youth, and families.
The initial CNA, completed in 2020, relied on a combination of quantitative data (e.g., public health, education, and demographic indicators and qualitative input gathered through community forums, focus groups, interviews, and surveys (Attachment 5). This process identified key areas of need, including mental and behavioral health, educational support, violence prevention, basic needs, and out-of-school time programming.
A subsequent CNA was completed in 2024, to inform the next funding cycle (Attachment 6). While many core needs remained consistent with those identified in 2020, the 2024 assessment found that several challenges—particularly related to mental health, educational supports, and access to basic needs—had intensified. The CNA process emphasized inclusive community engagement, incorporating input from youth, caregivers, service providers, and other stakeholders to ensure that RFCY investments remain responsive, equitable, and community-driven.
Strategic Investment Plans
Findings from each CNA have directly informed the development of three-year Strategic Investment Plans (SIPs), which establish funding priorities, outline investment strategies, and guide the allocation of RFCY resources.
The first SIP covered Fiscal Years 2021–2024 and marked the Fund’s initial full grantmaking cycle (Attachment 7). The SIP identified priority areas aligned with the Charter’s goals and directed funding toward community-based organizations serving children and youth from birth through age 24, with an emphasis on populations most impacted by inequity and systemic barriers.
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Building on lessons learned from the first funding cycle, the most recent SIP, covering FYs 2025–2028, refined priority areas and funding allocations based on updated community input and evaluation findings (Attachment 8). Across both plans, the SIPs have served as the primary policy and planning documents guiding RFCY investments and ensuring consistency with voter intent.
Evaluations and Evaluators
Independent evaluation is a core accountability feature of the Richmond Fund for Children and Youth. Article 15, Section 7, subdivision d.4. of the Charter requires regular evaluation of funded programs by a third-party, external evaluator to assess program implementation, outcomes, and alignment with Fund goals.
For the Fund’s first full investment cycle (FYs 2021–2024), the City contracted with WestEd to conduct a comprehensive, mixed-methods evaluation of RFCY-funded programs. The evaluation examined program reach, service delivery, participant outcomes, and early system-level impacts across funded priority areas. Data sources included grantee reports, participant surveys, interviews, focus groups, and administrative data.
The evaluation found that RFCY-funded programs largely met or exceeded service targets, demonstrated strong cultural responsiveness, and produced positive outcomes for participants, particularly in education, social-emotional well-being, and safety (Attachment 9). The evaluator also identified opportunities for improvement, including strengthening data systems and expanding technical assistance to grantees. These findings have informed ongoing implementation and the development of subsequent Strategic Investment Plans. More specifically, based on feedback received at the January 20, 2026, City Council meeting, City staff will incorporate refinements to the evaluation framework, including unduplicated participant counts by organization, enhanced data accuracy and verification protocols to confirm residency, and the inclusion of select individual-level metrics by organization where appropriate. An annual review of 2025 grantees are anticipated to be presented to City Council in May 2026.
Priority and Core Need Areas Served
Over its initial funding cycle, RFCY investments have supported a broad range of services aligned with Charter-defined eligible uses and SIP priorities. Funded programs addressed core need areas such as mental and behavioral health, education and workforce development, out-of-school time and enrichment, violence prevention, access to basic needs, and information, guidance, and case management.
Between FYs 2021–2024, the Fund awarded grants to 46 community-based organizations and public agency partners, supporting dozens of individual programs across Richmond and North Richmond. The portfolio included both established providers and small or emerging organizations, reflecting the Fund’s commitment to equity, community representation, and capacity building https://www.ci.richmond.ca.us/4314/RFCY-Grant-Awardees.
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During this same period, RFCY allocated approximately $9.1 million in grant funding to support direct services for children, youth, and families. Funding levels varied by priority area and program type, with investments distributed across multiple years to provide stability, support planning, and enable sustained service delivery.
CITY COUNCIL ACTIONS AND POLICY OPTIONS
The current ten-year Fund expires at the end of FY 2027-28, and the decision to extend the term of Fund for an additional ten years from FY 2028-29 through FY 2037-38, will be set before the City Council and/or voters.
Section 11 of Article 15 states that “if the City Council does not act to extend the provisions of this Article before December 31, 2027, the City Council shall be obligated to place a measure on a 2028 election ballot seeking voter approval of whether to extend the term for an additional ten years.” City staff is requesting City Council consideration and action in 2026 due to timing. The 2028 primary election in June 2028 is at the end of the current 10-year term and waiting until 2028 for voter action would cause planning and implementation issues and delays for RFCY staff and grant recipients.
Below are policy options for the City Council’s consideration related to the renewal of the Richmond Fund for Children and Youth. Upon receipt of policy direction, City staff will return with additional analysis for the City Council’s consideration, including but not limited to the options below. The final options will be based on City Council direction.
City staff recommend hosting 2–3 community meetings regarding policy options, tentatively scheduled for April 13 and April 15, to provide opportunities for community discussion and input.
Option 1. City Council Reauthorizes the Article Without Amendment (Keep As-Is)
Under this option, the City Council adopts an ordinance or resolution reauthorizing Article 15 by a simple majority vote on or before June 13, 2026. This action would extend the Richmond Fund for Children and Youth for an additional ten-year term without amendment, consistent with existing Charter language. No voter action would be required under this option, and all provisions of Article 15 would remain unchanged.
Option 2. City Council Does Not Reauthorize; Measure Placed on Ballot Without Amendment (Voters Decide)
Under this option, the City Council does not act to reauthorize the Article by simple majority vote. As a result, the City would place a measure on the November 3, 2026, General Election ballot asking voters whether to reauthorize Article 15 for an additional ten-year term without amendment, as contemplated by the Charter. Under this scenario, continuation of the Fund would be subject to voter approval.
March 24, 2026
Option 3. City Council Proposes Amendments to the Article (Amendments Voters Decide)
Under this option, the City Council elects not to reauthorize Article 15 in its current form and instead proposes one or more amendments to the Charter provisions governing the Fund. In this scenario, the proposed amendments would require voter approval and would be placed on the November 3, 2026, General Election ballot.
Potential amendment concepts may include, but are not limited to, the following (subject to legal review):
a. Adjusting the General Fund contribution, such as capping or reducing the allocation from the current three percent (3%) to a lower percentage (e.g., two percent or one percent).
b. Increasing eligibility and funding for specific programs or entities, in support of Advanced Life Support (Fire Department), coordinated after-school programs (including athletic teams, maintaining parks and sports spaces), Black Resiliency, Immigration Support, Richmond Promise, unhoused supportive services, or other policy matters to support children and healthy families in Richmond. c. Modifying allowable administrative or evaluation expenditures, including increasing the maximum percentage allocation for City administration, evaluation, or audit functions (e.g., increasing percentage for City administration from 10 percent to 14 -20 percent) to fully cover administrative costs.
Any amendment to Article 15 would require voter approval and could not be implemented solely by City Council action.
CURRENT & ONGOING INVESTMENT AND FINANCIAL IMPACT
Table 1 below illustrates the progression of Richmond Fund for Children and Youth (RFCY) contributions from the City’s General Fund from FY 2018-19 through FY 2027-
28. Initial fixed-dollar allocations of $250,000 in FY 2018-19 and $700,000 in FY 2019- 20 supported early program infrastructure, with no transfer in FY 2020-21. Beginning in FY 2021-22, RFCY funding transitioned to a percentage-based allocation calculated as a share of General Fund revenues, starting at 1 percent ($1.93 million), increasing to 2 percent in FY 2022-23 ($4.12 million), and reaching the full 3 percent allocation in FY 2023-24 ($7.19 million). The 3 percent allocation remains through FY 2027-28.
Year-over-year percentage changes in the early years reflect low or zero baseline funding and should be interpreted as part of a phased implementation rather than ongoing growth rates. The largest increase occurred in FY 2019-20 (180 percent) during the initial build-out phase, followed by a 114 percent increase in FY 2022-23 and a 74 percent increase in FY 2023-24 as the percentage allocation was fully implemented.
After FY 2023-24, growth moderates to approximately 2–3 percent annually, reflecting continued application of the 3 percent allocation and projected General Fund revenue
March 24, 2026
growth. Annual contributions are projected to reach approximately $9.06 million by FY 2027-28, based on assumptions in the General Fund Five-Year Forecast presented to City Council on January 27, 2026, and assuming the 3 percent General Fund contribution to the Richmond Fund for Children and Youth is unchanged.
Table 1: Richmond Fund for Children and Youth 10-Year Contributions Year over Year Growth from FY 2019 - 2028 Fiscal Year RFCY
Contributions
Allocation
Percentage of
General Fund
Year-Over-Year
Increase in Percentage
2019 250,000 - -
2020 700,000 - 180%
2021 - - -100%
2022 1,929,172 1% -
2023 4,121,294 2% 114%
2024 7,186,411 3% 74%
2025 7,575,272 3% 5%
2026 8,546,616 3% 13%
2027 8,836,913 3% 3%
2028 9,058,023 3% 3%
TOTAL $48,203,701
Table 2 below shows the projected contributions to RFCY from the General Fund if maintained at 3 percent annually, and if reduced to 2 percent or 1 percent annually. As noted, the City Council can determine to extend the provisions of Article 15 without amendments for an additional ten-year term by simple majority vote. This would retain the 3 percent annual contribution for ten years starting in FY 2028-29. If the City Council decides to amend the annual allocation of the Article, Table 2 below provides potential changes to consider.
Table 2: RFCY Contribution Scenarios
Fiscal
Year
RFCY
Contributions if
Maintained at 3%
RFCY
Contributions if
Changed to 2%
RFCY
Contributions if
Changed to 1%
2029 9,299,007 6,199,338 3,099,669
2030 9,533,415 6,355,610 3,177,805
2031 9,884,251 6,589,500 3,294,750
2032 10,090,107 6,726,738 3,363,369
2033 10,301,110 6,867,406 3,433,703
2034 10,517,387 7,011,592 3,505,796
2035 10,739,072 7,159,381 3,579,691
2036 9,316,299 6,210,866 3,105,433
2037 9,549,206 6,366,138 3,183,069
2038 9,787,936 6,525,291 3,262,645
TOTAL $99,017,790 $66,011,860 $33,005,930
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Timeline
The proposed schedule establishes a clear sequence of actions to support timely City Council consideration of the RFCY renewal and potential placement of a measure on the November 3, 2026, General Election ballot. It identifies when Council direction is requested, when fiscal and legal analyses must be completed, when study sessions and formal actions would occur, and when required election materials, arguments, and Registrar submittals are due. The timeline also reflects statutory deadlines for ballot placement, voter guide preparation, and election administration. City staff will align work products and engagement activities to these milestones to ensure that City Council direction can be implemented efficiently and in compliance with all applicable requirements.
Milestone Proposed Date(s) (Subject to Change)
Introduce RFCY reauthorization item to
City Council; receive direction regarding
need for ballot measure
March 24, 2026
If City Council decides to extend the measure without amendments, then no ballot measure is required
If City Council decides to allow the voters to decide on the reauthorization or an amendment is requested, then the following timeline is in effect Fiscal analysis completed (tax/bond
statements, if applicable)
March 24 – April 16, 2026
Community Listening Session(s) –
Optional per Council Direction
April 13, 2026 (Daytime and Evening)
April 15, 2026
Study sessions held (Includes
opportunities for stakeholders to
participate in public meetings)
April – May 2026 (Proposed: April 28)
City Council adopts resolution placing
measure on ballot
June 13, 2026
Staff Actions Subsequently Required*:
Measure materials submitted to Registrar
(≤75 words; full text; impartial analysis
contact)
June 16 – Jun 30, 2026
Window to place measure on ballot July 7 – August 7, 2026 (last date)* Local measure letter signed July 10 – August 10, 2026
Primary arguments due (for/against) July 17 – August 19, 2026 Rebuttal arguments due July 24 – August 24, 2026
Voter Information Guide mailing
(estimated)
September 17 – September 24, 2026
General Election Day November 3, 2026
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SYNERGISTIC POLICIES:
City of Richmond Charter, Article 15, Section 11 – Establishes the timeline and process for reauthorization or voter consideration of the Richmond Fund for Children and Youth.
Richmond Fund for Children and Youth (Measures E & K) – Provides dedicated funding for programs that support youth development, education, health, and enrichment services for Richmond children and youth.
Health in All Policies (HiAP) – Integrates health considerations into City decision- making across departments to improve community health outcomes, particularly for children and families.
Race and Equity Action Plan (REAP) – Guides City policies and programs to advance racial equity and address disparities affecting Richmond residents, including youth and families.
Richmond General Plan – Includes policies that support youth well-being through access to education, safe neighborhoods, parks, recreation, and healthy environments.
Parks and Recreation Master Plan – Expands equitable access to recreation programs, safe play spaces, and youth activities that promote physical and mental health.
DOCUMENTS ATTACHED:
Attachment 1 – Article 15 Richmond Fund for Children and Youth Attachment 2 – Measure E
Attachment 3 – Measure K
Attachment 4 – Measure H
Attachment 5 – Community Needs Assessment 2020
Attachment 6 – Community Needs Assessment 2024
Attachment 7 – Strategic Investment Plan 2021–2024
Attachment 8 – Strategic Investment Plan 2025-2028
Attachment 9 – Evaluation 2021–2024