Susana Alcala Wood, City Attorney Jorge Oseguera, City Auditor Mindy Cuppy, City Clerk Howard Chan, City Manager John Colville, City Treasurer City Council Report
915 I Street, 1st Floor
Sacramento, CA 95814
www.cityofsacramento.org
File ID: 2022-00534 March 1, 2022 Discussion Item 21
Title: Resolution Establishing Weather Criteria for Opening Seasonal Respite Centers
Location: Citywide
Recommendation: Pass a Motion to adopt a resolution that (1) rescinds Resolution No. 2021- 0058, and (2) directs the City Manager to establish Respite Centers with weather criteria throughout the city; to include the respite centers in the work program for the Department of Community Response and the Office of Emergency Management; to allocate funding for the Respite Centers for the remainder of FY 2021-2022; to include the resources needed in the FY 2022-2023 budget; and finds these activities exempt from CEQA.
Contact: Christopher C. Conlin, Assistant City Manager/Public Safety, 916-808-8526, [email protected]
, Office of the City Manager
Presenter: Christopher C. Conlin, Assistant City Manager/Public Safety, 916-808-8526, [email protected], Office of the City Manager
Attachments:
1-Description/Analysis
2-Resolution 2021-0058
3-Resolution
File ID: 2022-00534 Discussion Item 21
March 1, 2022
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City of Sacramento
Description/Analysis
Issue Detail: On any given night in Sacramento, several thousand people live unsheltered outdoors. The 2019 Point in Time Homeless Count released by the Sacramento County Continuum of Care reported approximately 5,570 individuals experienced homelessness throughout the county. Despite the placement of over 1,600 people in supportive housing in 2020, the number of people living outdoors continues to be exacerbated by the public health and economic crises caused by the COVID-19 pandemic, with inadequate numbers of shelter beds to meet the demand.
On January 26, 2021, Northern California experienced an atmospheric river system, the first severe storm of 2021, with an inch of rain in downtown Sacramento and southerly wind gusts of up to 70 miles per hour.
On January 27, 2021, the City Council held an Emergency City Council meeting and adopted an emergency declaration to take all action necessary to address the local emergency and imminent health and safety threats to the unhoused population during significant weather events. The City Council proclaimed the existence of a local emergency related to persons experiencing homelessness in extreme winter conditions and provided direction to the City Manager and the Emergency Services Manager to take all action necessary to address the local emergency, to address imminent health and safety threats to unhoused population during significant weather events.
The City Council directed staff to open warming centers, regardless of the Sacramento County requirements for temperature or weather events, in order to offer residents respite from the health effects of being unsheltered. As a result, City staff was able to open multiple warming centers to include the downtown library, city parking garage, City Hall, community centers and a church utilizing a combination of City staff and resources as well as private donations, community volunteers and County resources.
On March 9, 2021 the City Council directed the City Manager to adopt a City policy that overnight respite will be provided year-round in Triage Centers, regardless of weather conditions, dispersed throughout the City. (Resolution No. 2021-0058.) Specifically, the Council directed the City Manager to aggressively pursue a network of walk-in Triage Centers in underutilized public and privately enclosed spaces and safe parking lots throughout the City where people currently experiencing homelessness are living outdoors.
In response, City staff identified prospective Respite Center sites including a City owned location that was formerly the Science & Space Center Museum (3615 Auburn Blvd.). The facility is currently available, configured, and ready for operations. A contract to operate the
File ID: 2022-00534 Discussion Item 21
March 1, 2022
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City of Sacramento
site was also approved by City Council on January 4, 2022. However, City Staff has received direction that the site may only be open when specific weather thresholds are met and the site may only be operated for a limited time. These parameters conflict with the Triage Center resolution discussed above.
Opening the site under specific temperature thresholds will require the City Council to rescind the Triage Center Resolution No. 2021-0058. Keeping within the intent of this resolution and Resolution 2021-0023 that decouples the City from Sacramento OES Severe Weather thresholds also requires the establishment of City weather criteria. Staff has reviewed the policies of other local municipalities including practical measures for implementation and propose the following City Respite Center opening thresholds:
Cold Weather:
• Nighttime lows of 37 degrees or lower for two or more days within a five-day span; or • Rain for two or more consecutive days (forecast 60% or more); or • One day or night of rain combined with nighttime lows of 32 degrees or lower.
Hot Weather:
• Publication of a National Weather Service (NWS) Heat Advisory. An NWS Heat Advisory is issued within 12 hours of the onset of extremely dangerous heat conditions.
The general rule of thumb for this Advisory is when the maximum heat index temperature is expected to be 100° or higher for at least 2 days, and nighttime air temperatures will not drop below 75°.
These criteria are separate and distinct from State and County Office of Emergency Services Severe Weather Emergency Plans which are monitored by our City Office of Emergency Services. Therefore, the Respite Center opening thresholds would be monitored by the Department of Community Response to guide the opening of City Respite Centers.
Policy Considerations: On March 9, 2021 Council passed Resolution No. 2021-0058 “Elimination of Weather Criteria to Open Emergency Shelters and Direction to include Operation of Year-Round Triage Shelters as part of the City’s Shelter System and Ongoing City of Sacramento Work Program and Budget” to open Triage Centers year-round and independent of weather variables. On January 4, 2022, City Council approved the City Manager to execute an agreement with Hope Cooperative for Respite Center Program Services city-wide.
Economic Impacts: Not Applicable.
File ID: 2022-00534 Discussion Item 21
March 1, 2022
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City of Sacramento
Environmental Considerations: The proposed resolution is exempt from CEQA pursuant to CEQA Guidelines sections 15061(b)(3) (it can be seen with certainty that no significant effect on the environmental would occur) because it restricts operating hours as compared to the current effective resolution, Resolution No. 2021-0058, and 15269(c) (relating to specific actions necessary to prevent or mitigate an emergency).
The City Council has reviewed and approved several shelter proposals, and has concluded, in each case, that the design, construction and operation of such shelters would have no significant effect on the environment. Design of the shelters includes consideration of health and safety concerns, security lighting, sanitation and noise. The community concerns regarding those experiencing homelessness include health, safety, security and sanitation, and the establishment of safe and secure environments has a beneficial environmental effect that has been recognized by the City.
Sustainability: Not Applicable.
Commission/Committee Action: None.
Rationale for Recommendation: Despite identifying fully viable Triage Center locations such as the City owned former Science & Space Center Museum, City Staff have not been able to gain Council support for opening of the sites regardless of weather conditions and for more than 90 days at a time. This creates an undue expense and burden on City resources responding to episodic openings that do not comport with operator contracts or best use of facilities. Additionally, the City is not able to effectively serve vulnerable populations who are not inclined to utilize short-term respite and services. City staff recommends rescinding Resolution 2021-0058 and directing the city manager to include City specific temperature thresholds monitored by the Department of Community Services to guide the expeditious opening of City Respite Centers.
Financial Considerations: The City Council has already approved a contract for the provision of Respite Services. The City Manager will provide a recommendation regarding staffing and any other resources increases as additional Respite Centers needed to meet the Council- designated priorities addressing the homelessness crisis in the City.
Local Business Enterprise (LBE): Not Applicable.
RESOLUTION NO. 2021-0058
Adopted by the Sacramento City Counc il
March 9, 2021
Elimination of Weather Criteria to Open Emergency Shelters and Direction to
Include Operation of Year-Round Triage Shelters as part of the City’s
Shelter System and Ongoing City of Sacramento Work Program and Budget
BACKGROUND
A. On any given night in Sacramento, severa l thousand people live unsheltered outdoors.
The 2019 Point in Time Homeless Count released by the Sacramento County Continuum of Care reported 5,570 individuals who were unsheltered. On June 30, 2020, Sacramento Steps Forward detailed 5,123 people experiencing homelessness in Sacramento County, a majority of whom were in the City of Sacramento; that number did not decline through calendar year 2020 despite the placement of over 1,600 people in supportive housing. The number of people living outdoors continues to be exacerbated in 2021 by the COVID pandemic public health and economic crises with inadequate numbers of shelter beds to meet the demand.
B. In September 2018, a panel of the Ninth Circuit decided the Martin v. City of Boise, wherein the court ruled that, except under specific circumstances, enforcement of ordinances that prohibit sleeping or camping on public property by individuals experiencing homelessness is unconstitutional when meaningful alternatives such as a shelter space or legal places to camp. The Ninth Circuit amended its opinion in April 2019 but denied a petition for rehearing by the full court and in December 2019, the U.S. Supreme Court denied a petition for review filed by the City of Boise.
C. On January 5, 2021, the City Council confirme d that addressing this shelter crisis and the devastating need for housing individuals is the City’s highest priority. The City Council also adopted a comprehensive city-wide work program to identify and define additional prevention services and comprehensively identify sites throughout the city that would provide both temporary and long-term housing solutions, such as safe parking and camping areas, new shelters, transitional housing, and permanent supportive and affordable housing with systematic implementation (Resolution 2021-0004). The preparation of a Comprehensive Master Plan for Siting, Operations, Programs and Financing is in progress with a Council vote to consider the Plan anticipated in June 2021.
Resolution 2021-0058 March 9, 2021 Pa
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D. On January 12, 2021, the City Council approv ed the continuation of a local declaration of a shelter crisis and extended the duration of the present shelter crisis to January 12, 2022. The shelter crisis was first declared on January 14, 2020 for one year under chapter 7.8 of division 1 of title 2 of the California Government Code and at that time the Council directed the city manager to take action to streamline the provision of homeless shelters (Resolution 2020-0017).
E. On January 26, 2021, Northern California ex perienced an atmospheric river system, the first severe storm of 2021, with an inch of rain in downtown Sacramento and southerly wind gusts of up to 70 miles per hour. The storm destroyed the temporary shelters, tents and property of those experiencing homelessness in Sacramento. At least four people died during this time period.
F. On January 27, 2021, the City Council held an Emergency City Council meeting and adopted an emergency declaration to take all action necessary to address the local emergency and imminent health and safety threats to the unhoused population during significant weather events. The City Council proclaimed the existence of a local emergency related to persons experiencing homelessness in extreme winter conditions and provided direction to the City Manager and the Emergency Services Director to take all action necessary to address the local emergency, to address imminent health and safety threats to unhoused population during significant weather events (Resolution No. 2021-0023). The City Council directed staff to open warming centers, regardless of the Sacramento County requirements for temperature or weather events, in order to offer residents respite from the health effects of being unsheltered.
G. Since the Council action of January 27, 2021, City staff have opened three warming centers in a downtown library, city parking garage and a church with the support of individual Councilmembers, private donations for supplies, social worker staffing by Sacramento County, and a tremendous corps of community volunteers. Over 80 individuals have been served each night the facilities were open for walk-in or safe parking operations. Intended as shelter to provide a warm, safe place for overnight respite, the facilities have also served as walk-in triage centers to connect people to mental health and other services including motel vouchers for especially vulnerable populations including pregnant women, families, and elderly veterans.
BASED ON THE FACTS SET FORTH IN THE BACKGROUND, THE CITY COUNCIL RESOLVES AS FOLLOWS:
Section 1. The City Council recognizes t he urgent need to bring residents indoors with temporary and permanent shelter and housing solutions. The condition of living outdoors is a public health crisis regardless of the weather conditions, whether they include heat, cold, severe winds, rainfall, or poor air quality.
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Section 2. Short-term shelter is not an end, but in many cases an essential beginning to helping people connect to the mental health and other services they need to secure housing and stability in their lives.
Section 3. Triage Centers, both daytime a nd overnight, established by the City with a network that includes quality non-profit service providers, local assembly and faith-based organizations, Sacramento County social service agencies, and private property owners, will allow the City to bring more people indoors in much greater numbers, even temporarily, while the City Council confronts the difficult decisions to site longer-term shelter, treatment facilities and housing projects deemed essential to provide housing for those experiencing homelessness and finds the resources to fund and finance these facilities.
Section 4. The City Council directs the City Manager to remove the temperature-related criteria to provide warming shelters and instead adopt a City policy that overnight respite will be provided year-round in Triage Centers dispersed throughout the City.
Section 5. The City Council di rects the City Manager to include the Triage Centers in the work program for the Department of Community Response and Office of Emergency Management and to aggressively pursue a network of walk-in Triage Centers in underutilized public and privately enclosed spaces and safe parking lots throughout the City where people currently experiencing homelessness are living outdoors. The City Council also directs the City Manager to dedicate specific Triage Centers or Centers with separate entrances and facilities to specifically serve families with children.
Section 6. The City Council directs the Cit y Manager to identify and allocate funding sources for the Triage Centers and report back to the City Council for the remainder of FY 2020-21 and for inclusion in the FY 2021-22 budget the resources needed to implement a robust program.
Resolution 2021-0058 March 9, 2021 Page 3 of 4
Adopted by the City of Sacramento City Council on March 9, 2021 by the following vote:
Ayes: Members Ashby, Guerra, Harris, Jenning s, Loloee, Schenirer, Valenzuela, Vang, and Mayor Steinberg
Noes: None
Abstain: None
Absent: None
Attest:
_____________________________________
Mindy Cuppy, City Clerk
The presence of an electronic signature certifies that the foregoing is a true and correct copy as approved by the Sacramento City Council.
Resolution 2021-0058 March 9, 2021 Pa ge 4 of 4
Mindy Cuppy
Digitally signed by Mindy Cuppy
Date: 2021.06.16 16:18:49
-07'00'
RESOLUTION NO.
Adopted by the Sacramento City Council
[DATE]
Rescinding Resolution No. 2021-0058 and directing the City Manager to establish Respite Centers with weather criteria and allocate funding for their operation.
BACKGROUND
A. According to the 2019 Point -in-Time Homeless Count released by the Sacramento County Continuum of Care , approximately 5,570 individuals experienced homelessness throughout the county . On June 30, 2020 , Sacramento Steps Forward estimated 5,123 people were experiencing homelessness in Sacramento County, a majority of whom were in the City of Sacramento; that number did not decline through calendar year 2020 despite the placement of over 1,600 people in supportive housing. The Point-in-Time Count could not be conducted in 2021 because of the COVID -19 pandemic, but the number of people living outdoors continues to be exacerbated by the public health and economic crises with inadequate numbers of shelter beds to meet the demand.
B. The City Council realizes that the significant number of persons within the city who are without the ability to obtain shelter threatens the health and safety for those persons . On that basis, the City Council declared a shelter c risis in 2018. (Resolution No. 2018-0436.) On January 11, 2022, the City Council declared that the shelter crisis is continuing. (Resolution No. 2022-0017.)
C. On January 27, 2021, in the wake of an atmospheric river storm system, the City Council adopted an emergency declaration to take all action necessary to address the imminent health and safety threats to the unhoused population during significant weather events. The City Council directed staff to open warming centers, regardl ess of the Sacramento County requirements for temperature or weather events, to offer residents respite from the health effects of being unsheltered. (Resolution No. 2021-0023).
D. On March 9, 2021, the City Council recognized the urgent need to bring residents indoors , regardless of the weather conditions . The City Council
directed the City Manager to adopt a City policy that overnight respite will be provided year-round, regardless of the weather, in Triage Centers dispersed throughout the City. (Resolution No. 2021 -0058.) However, opening Triage Centers has proven to be difficult.
E. On August 10, 2021, the City Council adopted the 2021 Comprehensive Siting Plan to Address Homelessness. The Comprehensive Sit ing Plan included 20 priority sites for short term solutions to the Shelter Crisis. The City Manager was directed to begin implementation of the Comprehensive Siting Plan immediately. (Resolution No. 2021-0251.)
BASED ON THE FACTS SET FORTH IN THE BACKGROUND, THE CITY COUNCIL RESOLVES AS FOLLOWS:
Section 1. There continues to be an urgent need to bring residents indoors with temporary and permanent shelter and housing solutions. The condition of living outdoors is a public health crisis regardless of the weather conditions. However, severe weather events heighten the threats to the health and safety of the unhoused and increases the urgency for additional shelter space.
Section 2. The City Council finds the activities in Sections 4 through 7 below are exempt from CEQA pursuant to CEQ A Guidelines sections 15061(b)(3) because it restricts operating hours as compared to the current effective resolution, Resolution No. 2021 -0058, and 15269(c) because it is necessary to prevent or mitigate an emergency.
Section 3. Resolution No. 2021-0058 is hereby rescinded.
Section 4. The City Manager is directed to establish a network of Respite Centers that will open for overnight respite when the following criteria are met:
Cold Weather:
Nighttime lows of 37 degrees or lower for two
or more days within a five-day span; or
Rain for two or more consecutive days
(forecast 60% or more); or
One day or night of rain combined with
nighttime lows of 32 degrees or lower.
Hot Weather:
Publication of a National Weather Service
(NWS) Heat Advisory. An NWS Heat Advisory
is issued within 12 hours of the onset of
extremely dangerous heat conditions. The
general rule of thumb for this Advisory is when
the maximum heat index temperature is
expected to be 100° or higher for at least 2
days, and nighttime air temperatures will not
drop below 75°.
Section 5. The City Manager is directed to establish the Respite Centers in underutilized public and private spaces and safe parking lots throughout the City where people experiencing homelessness are living outdoors ; and to dedicate specific Respite Centers or separate Respite Center entrances to specifically serve families with children.
Section 6. The City Manager is directed to include the Respite Centers in the work program for the Department of Community Response and Office of Emergency Management
Section 7. The City Manager is directed to identify and allocate funding for the Respite Centers for the remainder of FY 2021 -22; and to report back to the City Council to include the resources needed to implement a robust program in the FY 2022-23 budget.