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DISCUSSION
City of San Bernardino
Request for Council Action
Date: January 15, 2025
To: Honorable Mayor and City Council Members
From: Rochelle Clayton, Acting City Manager
Department: City Manager's Office
Subject: Program Update and Amendments to Violence
Intervention and Prevention Program Service Provider
Agreements and Budget (All Wards)
Recommendation:
It is recommended the Mayor and City Council of the City of San Bernardino, adopt Resolution No. 2025-021:
1. Authorizing the City Manager, or designee, to execute an amendment to the agreement and budget with the Board of State and Community Corrections (“BSCC”) for the California Violence Intervention and Prevention Program Cycle 4 grant (“Grant”); and
2. Authorizing the City Manager, or designee, to terminate a Professional Services Agreement (“PSA”) with Victory Outreach San Bernardino (“Victory Outreach”); and
3. Authorizing the City Manager, or designee, to execute an amendment to the PSA with Operation New Hope; and
4. Authorizing the City Manager, or designee, to execute a Subrecipient Agreement with Young Visionaries Youth Leadership Academy (“Young Visionaries”), and PSAs with The Connie Rice Institute for Urban Peace (“Connie Rice”), and Loma Linda University Institute for Community Partnerships (“Loma Linda”) for community violence intervention services; and
5. Authorizing the Interim Finance and Management Services Director to issue Purchase Orders to Young Visionaries in a not to exceed (“NTE”) amount of $249,000 (“$249K”), Operation New Hope in a NTE amount of $458,000 (“$458K”), Connie Rice in a NTE amount of $110,000 (“$110K”); and Loma Linda in a NTE amount of $142,000 (“$142K”) from BSCC funding for community violence 2 3
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intervention services; and
6. Authorizing the Interim Finance and Management Services Director to reallocate $104,969.41 in American Resue Plan Act (“ARPA”) funding from Victory Outreach to Young Visionaries (in the amount of $50,578.88) and Operation New Hope (in the amount of $54,390.53).
Executive Summary
The City needs to submit a budget modification to the state reducing the Grant award from $3.8 million (“$3.8M”) to $1,896,729.09 due to significant underspending in the first year; and the City’s staff recommends reallocating the budget and service provider responsibilities to ensure the success and compliance with the City’s agreement with BSCC (and to meet the City’s goals and objectives). In addition, City staff recommends accepting a six-month no cost contract extension the state is offering extending the period of performance to June 30, 2026.
BSCC Funding Background
•On February 8, 2022, the City’s Violence Intervention Program (“VIP”) submitted a proposal to the BSCC’s Grant program. The City’s Grant submission was focused on building capacity for the VIP. •On July 8, 2022, staff received a notification BSCC approved the City’s Grant submission.
•On September 21, 2022, the Council authorized the City Manager to administer the Grant program on behalf of the City in an award amount of $3.8M. The BSCC Grant program period of performance ends December 31, 2025.
•On November 24, 2024, BSCC offered a six (6)-month no cost extension extending the period of performance to June 30, 2026.
Original BSCC Budget
BSCC Budget Line Item Grant Funds
1. Salaries and Benefits $0
2. Services and Supplies $0
3. Health and Wellness $0
4. Professional Services or Public Agency
Subcontracts
$0
5. Non-Governmental Organization (“NGO”)
Subcontracts
$3,400,000
6. Equipment/Fixed Assets $0
7. Project Evaluation $160,000
8. Financial Audit $25,000
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9. Other (Travel, Training, etc.) $50,000
10. Indirect Costs $165,000
TOTALS $3,800,000
ARPA Funding Background
•On October 6, 2021, the Council approved a motion to allocate one million dollars (“$1M”) of ARPA funds to the VIP program and authorized the City to release a Request for Proposals (“RFP”) to secure three (3) additional vendors to provide supportive services.
•On June 1, 2022, the Council authorized the City Manager to allocate $250K to Young Visionaries, $250K to Victory Outreach, and $250K to Operation New Hope.
•On October 9, 2024, the Council approved a motion to reallocate the unobligated $250K VIP ARPA funding to another project within the City.
Original ARPA Allocations
Provider Original Allocation Spent Remaining
Young Visionaries $250K $200,578.88 $49,421.12
Victory Outreach $250K $145,030.59 **$104,969.41
Operation New Hope $250K $211,008.89 $38,991.11
** Amount includes projected expenditures for January 2025 Program Background
The Community VIP program takes a public health approach to aid in the reduction of shootings and homicides, focusing on interrupting violence and the transmission of norms that promote it. Using a multi-pronged approach to reduce shootings involving youth and young adults, the model relies on the use of culturally appropriate staff who respond to shootings to prevent retaliation and detect and resolve conflicts that are likely to lead to shootings. The program aims to stop the spread of violence by using the methods and strategies associated with disease control:
1. Detecting and interrupting conflicts. Trained violence interrupters and outreach workers reduce shootings by identifying and mediating potentially lethal conflicts in the community, and following up to ensure the conflict does not reignite. a. Prevent Retaliations: Whenever a shooting happens, trained staff immediately work in the community and at the hospital to cool down emotions and prevent retaliations (working with the victims, friends and family of the victim, and anyone else related to the event).
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b. Mediate Ongoing Conflicts: Workers identify ongoing conflicts by talking to key people in the community about ongoing disputes, recent arrests, recent prison releases, and other situations; and utilize mediation techniques to resolve them peacefully.
c. Keep Conflicts “Cool”: Workers follow up with conflicts for as long as needed, sometimes for months, to ensure that the conflict does not become violent.
2. Identifying and treating the highest risk individuals: Trained and culturally- appropriate outreach workers engage with the highest risk individuals to make them less likely to commit violence by meeting them where they are, talking to them about the costs of using violence, and helping them to obtain the social services they need (such as job training and drug treatment).
a. Access Highest Risk: Workers utilize their trust with high-risk individuals to establish contact, develop relationships, and begin to work with the people most likely to be involved in violence.
b. Change Behaviors: Workers engage with high-risk individuals to convince them to reject the use of violence by discussing the cost and consequences of violence and teaching alternative responses to situations. c. Provide Treatment: Workers develop a caseload of clients who they work with intensively; seeing several times a week and assisting with their needs such as drug treatment, employment, and leaving gangs.
3. Mobilizing the community to change norms: Workers engage leaders in the community (as well as community residents, local business owners, faith leaders, service providers, and the high risk) conveying the message that the residents, groups, and community do not support the use of violence. a. Respond to Every Shooting: Whenever a shooting occurs, workers organize a response where dozens of community members voice their objection to the shooting.
b. Organize Community: Workers coordinate with existing and establish new block clubs, tenant councils, and neighborhood associations to assist. c. Spread Positive Norms: Program distributes materials and hosts events to convey the message that violence is not acceptable.
Discussion
In the City’s application for the VIP Grant program, Victory Outreach was proposed as the primary service provider. However, several challenges emerged during the first year of the three (3) year contract. The lead program manager overseeing this program at the City Manager’s Office transitioned from the role on March 2, 2023. 2 3
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Following this transition, a Management Analyst was temporarily assigned to oversee the program and discovered irregularities involving the former VIP manager and Victory Outreach including:
1. A violation of Section 4 of the PSA: The unauthorized advancement of $900,000 (“$900K”) to Victory Outreach.
2. A violation of Section 200.430(i)(1)(iii) to Title 2 of the Code of Federal Regulations: The provider requested reimbursement for one hundred percent (100%) for an employee time under the City’s program, while the same employee time was also reported under the VIP program in Chicago, Illinois.
3. The former VIP manager was listed as a consultant for Victory Outreach’s VIP program in Chicago, Illinois, for 2022; and as the Director of Programming for 2023.
Memos outlining these issues and proposing resolutions were sent to Victory Outreach on 8/18/23, 8/24/23, 9/13/23, and 10/27/23; however, its responses were insufficient and did not adequately address the issues identified. The City placed Victory Outreach on a disbursement hold due to this noncompliance and an independent fiscal review was conducted for the Grant program Cycles 3 and 4. The fiscal review confirmed the previously identified issues, along with additional findings.
In light of these findings, City staff recommends the termination of the PSA with Victory Outreach. It is important to note that despite these challenges, services were not interrupted. Victory Outreach continued to deliver services, adhere to data collection protocols, and submit invoices reflecting program activities. All submitted invoices were reviewed and compared against the $900,000 financial advancement provided in November 2022.
Due to these challenges, the City’s VIP program has experienced significant underspending and must now realign the program's budget. This includes reallocating funds to two new providers and submitting a budget modification to BSCC, reducing the original award amount from $3.8M to $1,896,729.09.
Proposed BSCC Budget Modification
BSCC Budget Line Item Grant Funds
1. Salaries and Benefits $0
2. Services and Supplies $0
3. Health and Wellness $0
4. Professional Services or Public Agency Subcontracts $0
5. Non-Governmental Organization (NGO) Subcontracts $1,584,942.84
6. Equipment/Fixed Assets $0
7. Project Evaluation $141,786.25
8. Financial Audit $25,000
9. Other (Travel, Training, etc.) $50,000
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10. Indirect Costs $95,000
Total $1,896,729.09
To ensure compliance with the City’s agreement with BSCC and to meet the program's goals and objectives, City staff recommends that Victory Outreach be replaced by two new subrecipients: Young Visionaries and Operation New Hope.
Both organizations successfully responded to the City's RFP process for Cycle 3, hold existing contracts with the City under ARPA funding, and have demonstrated their ability to effectively support VIP program outcomes. This transition will not only help the City meet BSCC’s required outcomes, but also expand the program's reach and overall effectiveness.
Proposed NGOs Allocations
Non-Governmental Organization (“NGO”)
Subcontracts Allocation
Young Visionaries $ 248,645.40
Victory Outreach** $ 878,807.00
Operation New Hope $ 457,490.44
Total $ 1,584,942.84
** Amount reflects expenses accrued since the beginning of cycle 4 and projected expenditures for January 2025
Furthermore, City staff recommends reallocating $104,969.41 in ARPA funds remaining from Victory Outreach to Young Visionaries and Operation New Hope.
Proposed ARPA Reallocations
Provider Allocation
Young Visionaries $50,578.88
Operation New Hope $54,390.53
Total $104,969.41
Additionally, City staff recommends adding Connie Rice as the training entity and Loma Linda as the program evaluator. Although these two organizations were not procured through the City’s RFP process, they served as subcontractors during Cycle
3. Both entities bring extensive expertise and a proven track record of contributing to the success of the VIP program.
Provider VIP General Funds BSCC
Connie Rice ***$60K $50K
Loma Linda $0.00 $141,786.25
***$60,00 from General Funds currently under the VIP operating budget Connie Rice is recognized for its specialized training in violence prevention strategies 2 3
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and community-based interventions. Their comprehensive approach to addressing the root causes of violence, combined with their experience working with vulnerable communities, has been instrumental in advancing the City's VIP program goals. Their continued involvement in this cycle will ensure that program providers receive high- quality training that aligns with the program’s objectives and fostering a safer and more resilient community.
Loma Linda has a strong background in program evaluation and performance measurement, having successfully evaluated the VIP program in Cycle 3. Their expertise in data collection, analysis, and reporting will play a critical role in ensuring the program’s outcomes are effectively measured; and that any necessary adjustments are made to enhance program impact. Their familiarity with the City's program structure and goals will help streamline the evaluation process, ensuring the City meets the accountability standards set by the BSCC.
By leveraging the experience and capabilities of Connie Rice and Loma Linda, the City will be able to build on the foundation laid in previous cycles; reinforcing its ability to meet BSCC objectives and improve overall program outcomes. 2021-2025 Strategic Targets and Goals
Approving professional services agreements aligns with Key Target No. 3: Improved Quality of Life. Having more hybrid professionals such as Street Outreach Workers and Case Managers increases the program's ability to reach more residents impacted by violence.
Fiscal Impact
Reduction of the BSCC Grant award and subsequent recommendations will not have any added fiscal impact on City's General Fund. The agreements are funded by the BSCC Grant and ARPA allocations assigned to the VIP program back in 2021. The $60k match for Connie Rice comes from General Funds currently under the VIP operating budget.
Conclusion
It is recommended the Mayor and City Council of the City of San Bernardino, adopt Resolution No. 2025-021:
1. Authorizing the City Manager, or designee, to execute an amendment to the agreement and budget with the Board of State and Community Corrections (“BSCC”) for the California Violence Intervention and Prevention Program Cycle 4 grant (“Grant”); and
2. Authorizing the City Manager, or designee, to terminate a Professional Services Agreement (“PSA”) with Victory Outreach San Bernardino (“Victory Outreach”); and 2 3
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3. Authorizing the City Manager, or designee, to execute an amendment to the PSA with Operation New Hope; and
4. Authorizing the City Manager, or designee, to execute a Subrecipient Agreement with Young Visionaries Youth Leadership Academy (“Young Visionaries”), and PSAs with The Connie Rice Institute for Urban Peace (“Connie Rice”), and Loma Linda University Institute for Community Partnerships (“Loma Linda”) for community violence intervention services; and
5. Authorizing the Interim Finance and Management Services Director to issue Purchase Orders to Young Visionaries in a not to exceed (“NTE”) amount of $249,000 (“$249K”), Operation New Hope in a NTE amount of $458,000 (“$458K”), Connie Rice in a NTE amount of $110,000 (“$110K”); and Loma Linda in a NTE amount of $142,000 (“$142K”) from BSCC funding for community violence intervention services; and
6. Authorizing the Interim Finance and Management Services Director to reallocate $104,969.41 in American Resue Plan Act (“ARPA”) funding from Victory Outreach to Young Visionaries (in the amount of $50,578.88) and Operation New Hope (in the amount of $54,390.53).
Attachments
Attachment 1 PSA Amendment - Operation New Hope
Attachment 2 Subrecipient Agreement - Young Visionaries Attachment 3 PSA -Connie Rice
Attachment 4 PSA - Loma Linda
Attachment 5 Resolution No. 2025-021
Ward:
All Wards
Synopsis of Previous Council Actions:
October 2, 2024 The Council approved motion to reallocate $250k ARPA funding allocated to the VIP program to street segment
repair.
September 21, 2022 The Council adopted Resolution No. 22-203 authorizing the City Manager to receive and administer the BSCC Grant
award of $3.8M, authorizing the City Manager to execute a fourth (4th) amendment to an agreement with Victory
Outreach, and authorizing the Agency Director of
Administrative Services to amend the FY 2022/2023 adopted budget revenue and expenditures by $3.8M
June 1, 2022 The Council approved ARPA PSA contracts for Young 2 3
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Visionaries, Victory Outreach, and Operation New Hope
October 6, 2021 The Council approved motion to allocate $1M of APRA funds and release an RFP to secure three (3) additional vendors October 21, 2020 The Council adopted Resolution No. 2020-251 authorizing the City Manager to receive and administer BSCC Grant
funds. The Council also adopted Resolution No. 2020-252 approving second budget amendments to community
intervention PSAs
June 2, 2020 The Council approved first amendments to community intervention program contractors
January 15, 2020 The Council adopted Resolution No. 2020-03 authorizing the City Manager to prepare and submit funding proposal
December 5, 2018 The Council approved community intervention PSAs February 21, 2018 The Council adopted Resolution No.18-39, authorizing the City Manager to receive and administer BSCC Grant funds