City of Sacramento
City Council - 5PM Report
915 I Street Sacramento, CA 95814
www.cityofsacramento.org
File ID: 2023-01393 1/9/2024 Consent Item 14.
Supplemental Agreements: Hope Cooperative Response and Respite Services [Published for 10-Day Review 12/27/2023]
File ID: 2023-01393
Location: District 2, Represented by Councilmember Loloee Recommendation: Adopt a Resolution: 1) authorizing the City Manager or the City Manager’s designee to execute Supplemental Agreement No. 2 to City Agreement No. 2022-0026 with TLCS, Inc., dba Hope Cooperative for Outreach and Engagement Center operations in an amount not-to- exceed $3,726,466, for a new total contract amount of $8,813,130; 2) authorizing the City Manager or the City Manager’s designee to execute Supplemental Agreement No. 2 to City Agreement No. 2022-0033 with TLCS, Inc., dba Hope Cooperative for expanded homeless outreach and mental health services in an amount not-to-exceed $2,363,490, for a new total contract amount of $5,781,861; and 3) authorizing the City Manager or the City Manager’s designee to transfer $3,194,069 (Measure U, Fund 2401) from the Community Response Multi-Year Operating Project (MYOP) (I23000100) to the Respite Centers MYOP (I23002000).
Contact: Brian Pedro, Interim Director, (916) 808-7816, [email protected], Department of Community Response
Presenter: None.
Attachments:
1-Description/Analysis
2-Hope Cooperative Outreach and Engagement Center Supplemental Agreement 3-Hope Cooperative Homeless Outreach & Mental Health Services Program Supplemental Agreement
4-CEQA Review: 3615 Auburn Blvd.
5-Notice of Exemption
6-Resolution
Description/Analysis
Issue Detail: In an effort to better serve persons experiencing homelessness in Sacramento, the Department of Community Response (DCR) recommends the City Council approve the following supplemental agreements with TLCS, Inc., dba Hope Cooperative (Hope), to continue providing
File ID: 2023-01393 1/9/2024 Consent Item 14.
essential services to those most vulnerable in our community.
Homeless and Mental Health Outreach Program Services
In January 2022, Hope Cooperative was awarded a contract for $3,418,371 that expired on December 31, 2023 to provide outreach services throughout the City, in collaboration with DCR’s alternative 911 response program. Key responsibilities of Hope Cooperative included hiring, training and onboarding a robust staff of managers, housing coordinators and outreach specialists to provide vigorous case management to those experiencing homelessness.
DCR is seeking approval to execute a supplemental agreement in the amount of $2,363,490 with Hope Cooperative to continue the Outreach Program for one year and expand services.
Under the supplemental agreement, outreach services will be expanded with the addition of 5 Outreach Navigators and 1 Team Lead, bringing total outreach staff to 24.5 FTEs. This includes a total of 13 Navigators, 2 Case Managers, and 5 Team Leads.
Hope Cooperative Outreach Navigators respond to and close out new and current 311 calls regarding general homelessness concerns, via the City’s Salesforce System. With Hope Cooperative responding to these concerns, DCR Neighborhood Resource Coordinators can strategically focus on rapid response and targeted outreach under the new Incident Management Team (IMT) established in September 2023. Hope Cooperative staff receive intensive trainings on a monthly basis to ensure their approach is trauma informed, cross culturally aware, and reduces harm.
Leveraging the foundation Hope has already built for the program and strong community partnerships, Hope Cooperative will continue to provide outreach, engagement, and case management for those experiencing homelessness throughout the City. Case management services include devising a case plan to address physical health, behavioral health, housing, employment, and other basic needs and facilitating referrals to other community-based supports and appropriate social services. While conducting outreach, Hope Cooperative provides necessities to unhoused individuals, including hygiene kits, clothing, and assistance with documentation. Staff will engage individuals and families experiencing homelessness to provide resource information, linkage/re- linkage to providers and support with navigating next steps toward housing.
Since Hope Cooperative has transitioned to responding to 311 general concern calls regarding individuals experiencing homelessness, Hope Cooperative teams have closed a total of 1,354 calls and respond to an average of 339 calls per month. With the addition of outreach staff, DCR anticipates this number will continue to increase.
Outreach and Engagement Center Operations
In March 2023, Council voted to extend City Agreement No. 2022-0026 with Hope Cooperative for one year through December 31, 2023 to operate the Outreach and Engagement Center (OEC).
Previously known as the Powerhouse Science Center, the OEC offers overnight respite and daytime
File ID: 2023-01393 1/9/2024 Consent Item 14.
engagement/triage for up to 50 people. The OEC operates 7-days a week, 23-hours per day, for individuals in the surrounding area that are experiencing homelessness. To continue operations of the OEC, DCR recommends Council approve a supplemental agreement in the amount of $3,726,466, extending services for one year. The supplemental agreement will continue to provide overnight respite and daytime engagement/triage services for up to 50 guests, with the ability to expand during inclement weather conditions at the activation of the City’s weather respite criteria.
The goal of the OEC is to provide life-saving resources for the most vulnerable members of our community by providing a safe space to stay overnight, introducing them to our Continuum of Care, and assisting them with the enrollment into mainstream services and triaging them into appropriate shelter and housing programs in the community. Upon entrance to the OEC and enrollment into the program, Hope Cooperative provides individuals with supportive items, such as clothing or personal care items, and provides one hot meal per day. Admittance to the program takes place by referral from DCR, Sacramento County Department of Human Services (DHS), or Sacramento Steps Forward (SSF).
The OEC utilizes the Homeless Management Information System (HMIS) to capture data on individuals who seek respite. Since January 1, 2023, the OEC has served nearly 600 people, including 83 families and 104 children. 80% of individuals with children exit to positive destinations including emergency shelter.
Serving as an access point to mainstream services, the OEC has served 142 people experiencing domestic violence, sexual assault or human trafficking. 37% of individuals report having a chronic health condition, while 30% report having a physical disability. It is important to note the OEC is not a shelter, but rather a positive step towards seeking assistance with either a spot at a shelter, housing or engagement with other social services. The average length of stay is 22 days.
In early 2023, the OEC served as a vital warming center during the January winter storms and accommodated nearly 100 individuals. Since amending weather respite activation criteria and activating the OEC on November 30, 2023, an average of 30 individuals, including those with children, have sought weather respite at the OEC. Hope Cooperative has proven to be a strong partner with the City. With approval of the supplemental agreement, the OEC will continue to be able to serve up to 100 individuals, including during inclement weather conditions.
The OEC utilizes a Good Neighbor Policy, ensuring that the surrounding community is not impacted by the Program’s operations. Hope Cooperative will continue hosting community meetings with surrounding neighborhoods to ensure the strong partnership with the community remains.
Policy Considerations: Recommendations in this report are consistent with Resolution No. 2021- 0058 to allow the operation of year-round triage shelters as part of the City’s shelter system.
File ID: 2023-01393 1/9/2024 Consent Item 14.
Pursuant to Sacramento City Code section 3.56.090, any agreement for non-professional services that is for $250,000 or more requires Council approval.
The Sacramento City Code Section 4.04.020 and Council Rules of Procedure (Chapter 7, Section E.2.d) mandate that unless waived by a 2/3 vote of the City Council, all labor agreements, and all agreements greater than $1,000,000 shall be made available to the public at least ten (10) days prior to council action. This item was published for 10-Day review on December 27, 2023, in compliance with City Code.
Economic Impacts: None.
Environmental Considerations: The City reviewed the original OEC project and determined it was exempt from CEQA review because it could be seen with certainty that no significant effects could occur as a result of project implementation. The City filed a Notice of Exemption on February 16, 2022. No substantial changes are proposed in the project. The project is exempt from CEQA review.
CEQA Guidelines section 15061(b)(3).
The Council adopted Resolution No. 2023-0084 on March 28, 2023 confirming the exemption from the California Environmental Quality Act.
Sustainability: Not applicable.
Commission/Committee Action: Not applicable.
Rationale for Recommendation: Services provided under this agreement address the ongoing need for supportive services for individuals experiencing homelessness in the City.
Time is of the essence as the current agreements for the Outreach and Engagement Center and Homeless and Mental Health Outreach Program Services expired on December 31, 2023.
Financial Considerations: Sufficient funding is available in the Community Response MYOP (I23000100) and Respite Centers MYOP (I23002000) to execute a supplemental agreement with Hope Cooperative in the amount of $3,726,466 for the Outreach and Engagement Center operations agreement. Sufficient funding is available in the Community Response MYOP (I23000100) in the amount of $2,363,490 to execute a supplemental agreement for the Homeless and Mental Health Outreach Program.
Local Business Enterprise (LBE): TLCS, Inc., dba Hope Cooperative is an LBE.
1 City of Sacramento
Department of Public Works and Department of Community
Development
Comprehensive Siting Plan Site CEQA Review: 3615 Auburn Boulevard
Date: February 1, 2022
Name of site: 3615 Auburn Boulevard
Site Address and/or Assessor Parcel Number (APN): 3615 Auburn Boulevard; APN 240- 0342-011
2035 General Plan and Zoning: General Plan Land Use = Parks and Recreation; Zoning = R-1 (Standard Single Family)
Size of site: Southern portion of an approximately 13.9-acre parcel Proposed use: Overnight Respite/Daytime Engagement & Triage Services Setting (use of nearby properties and infrastructure features):
North South East West
Arcade Creek; Park
Road; single-family
residential; Interstate
80 Auburn Boulevard;
multi-family
residential;
commercial
Bridge Road; Harry
Renfree Field; Del
Paso Regional Park
Children’s Receiving
Home of
Sacramento; Watt
Avenue; Interstate 80
Site Background Overview: The project site was historically used as the Sacramento Discovery Museum Science and Space Center (Museum), which was a non-profit organization aimed at educating and inspiring young children in science. The Museum was located on-site from 1976 until 2021, when it was relocated to 400 Jibboom Street, and rebranded as the SMUD Museum of Science and Curiosity. The existing building on-site is now vacant, and the site is unused. The majority of the project site has remained undeveloped, with the Museum building and parking lot located in the southern portion of the site.
Prior CEQA review: The City has not conducted previous review of the site or on-site activities pursuant to the California Environmental Quality Act, (CEQA).
Review of the Proposed Project
The following section describes the existing site conditions and provides a review of the proposed operations and the potential for operation to result in impacts to the physical environment.
Site Location and Existing Condition
The project site is located at 3615 Auburn Boulevard in the City of Sacramento (see Figure 1).
The parcel on which the project site is located is largely undeveloped, with the vacant Sacramento Discovery Museum Science and Space Center located in the southern portion of the site. 2 Figure 1
Project Site Boundaries Map
*Project Site boundaries are approximate.
Single-Family
Residential
Multi-Family
Residential
Commercial
Multi-Family
Residential
Harry
Renfree Field
Del Paso
Regional Park
Project Site
Legend
Project Parcel
Project Site
(Vacant Discovery
Museum)
Project
Parcel
3 Arcade Creek flows east to west across the northern edge of the project site parcel. Access to the project site is from Auburn Boulevard is by way of an existing asphalt driveway.
The project site is substantially surrounded by urban uses, including Park Road, single-family residences, and Interstate 80 (I-80) to the north; Auburn Boulevard, multi-family residential, and commercial uses to the south; Bridge Road, Harry Renfree Field, and Del Paso Regional Park to the east; and Children’s Receiving Home of Sacramento, Watt Avenue, and I-80 to the west.
Operation
The proposed project would use the former Sacramento Discovery Museum Science and Space Center building to provide space for administrative offices and emergency respite and services.
Respite and daytime engagement/triage services consist of a safe space to stay overnight, and assistance with enrollment into mainstream services and triage into appropriate shelter and housing programs in the community.
Admittance to the program would be through referral from the Department of Community Response (DCR), local Park Rangers, and the Department of Human Services. The referral groups would target unsheltered persons already staying in close proximity to the project site, as there is camping that now occurs in the neighborhood. An intake director would work directly with the referral providers to develop a daily roster and control census.
The proposed project would include minor improvements to the existing Museum site. On-site improvements would include either the removal or fencing of a dilapidated shed located behind the main building, and installation of a fence around the perimeter of the Museum site to enclose the area permitted to be used by guests. In addition, interior improvements to the vacant Museum building would include the replacement of upstairs carpet and a wifi/camera set up. Portable restrooms and dog kennels would be provided on-site. The proposed project would not include the construction of any additional structures, or other on- or off-site improvements.
Respite entry hours would occur seven days a week between 4:00 PM and 6:00 PM, and the project would be operational from 4:00 PM to 7:00 AM nightly to provide respite services. During intake, guests would be provided an opportunity to join comprehensive shelter and housing programs in the community. On-site follow-up appointments for guests who elect to join such programs would be scheduled between 9:00 AM and 1:00 PM the following day (five days a week) to complete a Comprehensive Needs Assessment where the project operator would find necessary resources, as well as work with providers in the community to enroll guests into 24- hour comprehensive programs. The proposed project would be staffed 24 hours a day, seven days a week by a third-party operator.
Good Neighbor Policies
The following is a list of site-specific Good Neighbor Policies that would be implemented for 3615 Auburn Boulevard prior to the site’s operation as an Overnight Respite/Daytime Engagement and Triage Services site:
A. Program Operation.
1. Contractor will be responsible for daily Program operations.
2. The Program will be locked to limit access to only approved guests.
3. Guests will be screened for 290 status and registered sex offenders will not be allowed access.
4. Guests will pass through a metal detector upon entrance to search for weapons. 4 5. Lockers will be provided for guests and all belongings must be securely locked away.
6. Guests will not be permitted to leave the property after nightly intake is completed unless there are mitigating circumstances approved by the contractor. If guests insist on leaving, they will not be permitted back in the center until being referred back the following day.
7. Services will be guest-centered. They include case management, linking to financial and non-financial resources, medical and behavioral health, alcohol and other drug treatment, employment and others.
8. The site is limited to guests, service providers and staff; no visitors.
9. Drug use and sales are not allowed on or around the Program site.
B. Noise.
1. No amplified sound is allowed on the site.
2. All noise from outside activities would be consistent with normal activities in the neighborhood and would not have a significant impact on the neighborhood.
C. Cleanliness.
1. The area around the Program shall be kept clean, with no visible negative impact to the neighborhood. “The area around the program” is defined as all public property 25 feet surrounding the Program.
2. Guests can only smoke in designated smoking areas and must properly dispose of all cigarette butts.
D. Site Staff.
1. The Program will be staffed by the Contractor 24-hours a day, seven days a week.
2. Staff will be experienced in working with vulnerable populations, including those suffering from mental health issues, understand cultural competencies, and be knowledgeable in de-escalating crises as necessary.
3. Staff will be trained in areas such Harm Reduction principles, cultural competencies, de- escalation, and trauma-informed care.
E. Site Security.
1. Due to the size and layout of the property, there will be 2 Security Guards on the property at all times to provide a safe environment for guests and staff. Security Guards will also be trained in areas such as Harm Reduction principles, cultural competencies, de- escalation, and trauma-informed care.
2. Any guest threatening the safety of the Program staff or the public will be discharged from the program, and the appropriate first response action taken.
3. The Program will be enclosed by a fence with one primary entrance and exit which shall be monitored by staff.
4. Guests’ belongings will be searched before they are allowed to enter.
5. Loitering, camping, and informal food and clothing distribution around the Program will not be allowed.
6. Crime Prevention Through Environmental Design (CPTED) strategies will be utilized to identify and remedy areas that are dark or secluded or otherwise places of vulnerability.
5 CEQA Review
The project qualifies for the exemption set forth in CEQA Guidelines section 15061(b)(3):
A project is exempt from CEQA if:… The activity is covered by the common sense exemption that CEQA applies only to projects which have the potential for causing a significant effect on the environment. Where it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment, the activity is not subject to CEQA.
The discussion below identifies the analysis of the City in its CEQA review of the proposal.
General plan and zoning
The 2035 General Plan designation for the project site is Parks and Recreation. The 2035 General Plan indicates that the Parks and Recreation designation provides for public and private recreational opportunities to surrounding neighborhoods, communities, and the region including parks (community and regional parks), greenways and trails, golf courses and commercial recreation facilities with an emphasis on outdoor, and compatible public, quasi-public, and selected special uses.
The general plan recognizes the importance of responding to the human service needs of persons experiencing homeless:
Facilities Location. The City shall work with the County on identifying adequate sites for health and human services facilities within the city to ensure that such facilities are easily accessible, distributed equitably throughout the city in a manner that makes the best use of existing facilities, and are compatible with adjoining uses. (PHS 5.1.1)
The City is implementing a program to respond to the needs of the community, both persons who are experiencing homelessness and established communities. The project would establish decent and accessible facilities; the City program has, as a goal, the equitable distribution of facilities throughout the community.
Homeless Population. The City shall work with public and private social service agencies to site facilities to address the human service needs of the city’s homeless populations. (PHS 5.1.4)
In addition to the general plan support for addressing homelessness, the City adopted a Comprehensive Siting Plan to Address Homelessness (“Siting Plan”). The proposed project is consistent with the goals of the Siting Plan to address the urgent homeless crisis in a sustained and successful way.
Identifying the causes of homelessness and crafting meaningful programs has proven to be a difficult task for local communities, and the City of Sacramento is no exception. The general plan includes many policies that relate to the issue at hand, including housing policies, respect for neighborhoods and legitimate concerns of the residents of the City at large. The City’s Housing Element seeks to identify and implement policies supporting community-wide housing needs, and the City’s success in achieving a healthy housing balance in the community is related to the needs of persons experiencing homelessness. Chapter H-9 of the Housing Element, entitled 6 “Sustainable, Stable and Integrated Communities,” for example, identifies many of the policies intended to support community-wide housing needs. The proposed project is consistent with general plan goals, as well as the intent of the Siting Plan.
The project site is located within the R-1 zone of the City of Sacramento. Section 17.204.200 of the City Code identifies the purpose of the R-1 zone, to accommodate low-density residential uses composed of single-unit detached residences and duplex dwellings on corner lots. Permitted uses for the R-1 zone are set forth in Section 17.204.210. The proposed temporary overnight Respite center is an allowed use on-site, and would enable the City to use a vacant, city-owned building to help address the homeless crisis in the City, and in particular, the immediate environs.
Site and project characteristics
The parcel on which the project site is located is largely undeveloped; the project site consists entirely of the vacant Sacramento Discovery Museum Science and Space Center located in the southern portion of the site. While the undeveloped portions of the site, including Arcade Creek, contain natural habitats that could support rare, threatened or endangered species, the proposed project would not result in any additional development or disturbance on-site beyond what is currently present. As discussed above, fencing would be installed around the project site to enclose the area permitted to be used by guests. Therefore, natural habitats that could support rare, threatened or endangered species would not be disturbed as a result of the proposed project.
The proposed project would not include the removal of any on-site trees.
Access to the project site is by way of existing roadways that have adequate capacity to accommodate the relatively limited trips that would be generated by the proposed project. As most of the daily guests are anticipated to come from the homeless population in the immediate area, vehicle trips to and from the site would be primarily limited to those associated with staff.
The nearest noise-sensitive receptors to the project site consist of the residences located directly to the west of the project site. Activities that would generate loud noise would not occur; amplified sound would not be used or permitted. Given that building power would be provided by existing connections to the grid, noise from emergency generators would not occur on-site.
As discussed above, admittance to the program would be through referral and would target unsheltered persons staying within 0.125-mile of the project site, and, thus, the reasonable assumption can be made that the majority of guests traveling to and from the proposed project would do so through alternative transportation means such as walking and biking. As such, air quality emissions from project operations would be primarily limited to employee vehicles traveling to and from the site. Given the small scale of the proposed project, the resultant emissions would be considered negligible and below the Sacramento Metropolitan Air Quality Management District’s thresholds of significance.
Development of the proposed project would consist of minor improvements to the existing Museum site such as the removal or fencing of a dilapidated shed and the installation of a fence to enclose the area where guests are permitted. As such, the proposed project would not substantially alter the existing drainage pattern of the site or area. On-site runoff would flow into the City’s existing storm drainage system, similar to the current conditions of the project site, and adverse effects to water quality would not occur.
Demand for City services could include law enforcement and fire protection. The City has substantial capacity to provide such services; and ongoing monitoring and enforcement of on-site activities by a third-party operator would reduce demand for law enforcement and fire protection services. More specifically, as discussed above, there will be two Security Guards on the property 7 at all times to provide a safe environment for guests and staff. In addition, loitering, camping, and informal food and clothing distribution around the Program will not be allowed. These robust safety measures will minimize the need for additional law enforcement services at the site and ensure the safety of nearby residents, including those at the adjacent Children’s Receiving Home of Sacramento.
The existing building is currently connected to the City’s water and sewer systems, and has adequate capacity to be used by on-site staff and guests. In addition, sufficient portable restrooms and hand wash stations would be brought on-site for use by project occupants. The restrooms would be serviced by a third-party at regular intervals. All garbage and food waste must be deposited in covered receptacles that are emptied when filled and the contents disposed of in a sanitary manner.
Cumulative Impact
The project site is located within a residential area, which is mostly developed. The nearest Priority Site to the project site is Site 2A (Roseville Road RT Parking Lot), which is located approximately
1.18 miles from the project site. The nearest Priority Site is not located in close enough proximity to the project site such that the homeless populations would be overconcentrated in any one area, thereby having the potential to create combined cumulative effects.
Hazardous Waste Sites
The California Environmental Protection Agency provides a list of data resources that provide information regarding the facilities or sites identified as meeting the “Cortese List” requirements, pursuant to Government Code 65962.5. According to the California Department of Toxic Substance Control (DTSC) EnviroStor database, the project site is not located on any list compiled pursuant to Section 65962.5 of the Government Code. The proposed project would not create a significant hazard to the public or the environment in regard to being located on a hazardous waste site.
Conclusion
This Memorandum demonstrates that the proposed project can be considered exempt from CEQA under Section 15601(b)(3). The City has determined that it can be seen with certainty that the proposed project would not have a significant effect on the environment.
RESOLUTION NO. 2024 - XXXX
Adopted by the Sacramento City Council
January 9, 2024
Transfer Funding from Community Response Multi-Year Operating Project (MYOP) (I23000100) to Respite Centers Multi-Year Operating Project (I23002000)
BACKGROUND
A. In January 2022, Council voted to contract with Hope Cooperative to provide respite services 23-hours/7 days a week at the Outreach and Engagement Center.
B. In March 2023, Council voted to extend Outreach and Engagement Center operations through December 31, 2023.
C. To date, the Outreach and Engagement Center has served 763 unique clients.
D. Funding for the Outreach and Engagement Center will continue to provide year- round respite services through December 31, 2024.
BASED ON THE FACTS SET FORTH IN THE BACKGROUND, THE CITY COUNCIL RESOLVES AS FOLLOWS:
Section 1. The City Manager or the City Manager’s designee is authorized to execute Supplemental Agreement No. 2 to City Agreement No. 2022-0026 with TLCS, Inc., dba Hope Cooperative for Outreach and Engagement Center operations in an amount not-to-exceed $3,726,466, for a new total contract amount of $8,813,130.
Section 2. The City Manager or the City Manager’s designee is authorized to execute Supplemental Agreement No. 2 to City Agreement No. 2022-0033 with TLCS, Inc., dba Hope Cooperative for expanded homeless outreach and mental health services in an amount not-to-exceed $2,363,490, for a new total contract amount of $5,781,861.
Section 3. The City Manager or the City Manager’s designee is authorized to transfer $3,194,069 (Measure U, Fund 2401) from the Community Response Multi- Year Operating Project (MYOP) (I23000100) to the Respite Centers MYOP (I23002000).