Santa Cruz County Civil Grand Jury 2014-2015 Response Packet Recipe for Failure: Shrinking Budgets and Increasing

Local jurisdictions have not provided adequate emergency shelter to accommodate the vast majority (80%) of the more than 3,500 total homeless persons in Santa Cruz County (using 2013 PIT data). X AGREE PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): The County and the four cities work together under the auspices of the Homeless Action Partnership (HAP). The HAP’s strategy is to prioritize permanently ending homelessness for people experiencing it through national best practice strategies such as permanent supportive housing and homelessness prevention and rapid rehousing programs. While we believe this is the right approach to end homelessness for individuals experiencing it, we recognize the on- going need for emergency shelter, and we have worked to fund and ensure availability of emergency winter shelter each year in both North and South County.

Despite persistent unmet needs, local jurisdictions have chosen not to fund or plan to increase the number of emergency shelter beds and services. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): Over the last several years there has been an increased number of emergency shelter beds and services in North County. Those projects include the Paul Lee Loft in 2008, and the Recuperative Care Center in January of 2014 serving medically vulnerable people who are homeless and being discharged from hospitals. In addition, while not the subject of this report, additional shelter beds in Watsonville have been or are being opened through the Pajaro Rescue Mission/Teen Challenge and the Paget Center serving homeless veterans, which opened in 2013. Although as a region we are prioritizing permanent supportive housing, rapid rehousing and prevention, considering additional emergency and interim services is a key action strategy under All-In, the recently adopted county-wide strategic plan, which states: “Engage the community around developing additional emergency and interim services for unmet health and safety needs of persons living outdoors, including small shelters around the county, warming centers and improvements to existing shelters.” (All-In ) Obviously, as long as people are sleeping outside more needs to be done to identify the resources needed to end homelessness and to shelter individuals who are experiencing it. The FY 2015/16 budget adopted by the Board of Supervisors includes an additional Homeless/Housing Coordination staff person who will be located in the County Administrator’s Office and will work with the Inter-agency Staff Coordinating Group.

Reliance on the National Guard Armory with its strict rules and regulations limits the effectiveness of the North County Emergency Winter Shelter. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): The National Guard Armory is accessed through a “License to Use State Military Facility” between the County of Santa Cruz and the Military Department, State of California. The License makes the armory facility available for use as an Emergency Shelter nightly between the hours of 6:00 PM through 7:00 AM October 15th through April 15th except “during any period that any organization of the State Militia or of the Armed Forces of the United States is conducting drills or other military training or activity at the armory”. Besides limiting hours of use the License prohibits the use of intoxicating beverages and tobacco, and stipulates daily cleaning requirements. Use of the facility is in accordance with California Government Code §15301-15301.6 as an emergency response operation in order to prevent “the loss of life” of homeless persons during winter weather conditions. The State requires the operator to ensure basic safety and security. Limited nighttime-only access to shelter in a cavernous crowded facility is not a program that anyone would design to effectively end homelessness. The goal of the winter shelter program is to provide emergency night-time shelter. Cold weather emergency shelter does not solve homelessness for individuals but is a last resort humanitarian provision of shelter. Parameters set by the State Military Department are not the primary factor limiting effectiveness of the Armory; it is likely that any site used for this purpose would have many of the same limitations. The primary factors that limit the effectiveness of the Armory are outlined elsewhere in the Grand Jury report, and include the number of beds and the costs associated with transporting clients to the site.

The absence of a back-up plan to replace the National Guard Armory threatens the continuing existence of the North County Emergency Winter Shelter program. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): As described above, the Armory is a facility that provides minimal emergency winter shelter. The building is owned by the State Department of the Military and access to it for cold weather shelter is dependent on the State’s ability to provide staffing at the facility. While the State’s ability to provide access is assessed annually, the Military Department has demonstrated a commitment to continue the program. The County and the four cities jointly provide funding to operate emergency winter shelter programs through the Homeless Action Partnership (HAP) and have demonstrated their commitment to emergency winter shelter by providing decades of funding for the programs. On multiple occasions the jurisdictions have sought to identify alternative sites for winter shelter. There are very limited sites that could serve this purpose. Potential alternative sites have been ruled out for reasons ranging from neighborhood concerns, transportation requirements, access to services required to safely run an emergency program (meals, bathrooms, showers) and funding. Finally, an alternative site would require significant investments of financial capital and political will. As stated above, emergency shelter does not end or shorten an individual’s experience of homelessness and the significant reduction of homelessness (44% reduction since 2013 according to the 2015 Santa Cruz County Homeless Census and Survey) can be attributed, at least in part, to prioritizing effective programs proven to end homelessness. These programs include permanent supportive housing and prevention and rapid rehousing. Each of the jurisdictions participates in funding for programs that employ these strategies. The jurisdictions appreciate the Grand Jury’s concern with the issues at the Armory and the jurisdictions will continue to seek alternative sites for emergency cold weather shelter.

Insufficient emergency shelter capacity limits access to coordinated entry services for the homeless population. AGREE PARTIALLY DISAGREE - explain disputed portion below X DISAGREE - explain below Response explanation (required for responses other than “Agree”): Developing a coordinated entry system is a key strategy identified in All-In the county-wide strategic plan to address homelessness. A coordinated entry system streamlines and targets crisis response that quickly assess a household’s needs and provides tailored resources for persons in crisis. Coordinated entry is required by the Department of Housing and Urban Development for Continua of Care under the HEARTH Act. The HAP is in the process of developing and identifying funding to implement such a system. The essential premise of a coordinated entry system is to streamline access to services so that there is no “wrong door” for entry to services. While we agree with the Grand Jury’s assessment that emergency shelter is a potential point for a homeless person to access a coordinated entry system, it is not the only access point for services and we are striving to provide a streamlined range of access to homeless services. We fully intend to have all County and City funded emergency shelters participate in the coordinated entry system.

Insufficient numbers of personnel and case managers at the emergency shelters limit the services that can be provided to homeless individuals. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): There is no question that case management services are a key component to end homelessness for many individuals. This need is recognized by local nonprofit agencies, jurisdictions, the Homeless Action Partnership and Smart Solutions to Homelessness. Case management support linked with access to housing is the solution to homelessness for a significant share of the people experiencing it and there are shelter programs focused specifically on pairing emergency shelter to case management to lead to permanent housing. Services that are offered at the Armory are limited to those required to operate a safe cold weather shelter. Homeless individuals can and do form relationships and build trust with staff with the Homeless Services Center, the program operator, but case management is not specifically part of the program. There is a much more pressing need for case management services for people who are on a path to permanent housing. Recognizing the role of year round shelter programs to resolve homelessness, HSC has recently adapted their program at the Pau Lee Loft to pair case management with housing resources for people on a pathway to permanent housing. While resources are constrained, we are constantly looking for opportunities for additional case management funding. In the absence of sufficient funding the community has been providing volunteer resources such as the Wings and the Housing Navigator programs associated with the 180/2020 Initiative. Additional case management is supported through Community Grant programs and has been included in an application for CDBG funds submitted by the County.

Insufficient number of staff dedicated to grant writing results in missed grant funding opportunities. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): When it was announced this spring that the Homeless Services Center (HSC) was not awarded funding through the State’s Emergency Solutions Grant program it became clear that funding and operating a multi-service program is complex and dynamic. Skilled response to varied and changing funding opportunities is a vital component to stability, and the level of staffing dedicated to fund development is determined by HSC. The HAP has been very successful in raising funds for homeless services from federal and State sources, bringing in close to $30,000,000 since 2001.

Obviously, as long as people are sleeping outside more needs to be done to identify the resources needed to end homelessness and to shelter individuals who are experiencing it. The FY 2015/16 budget adopted by the Board of Supervisors includes an additional Homeless/Housing Coordination staff person who will be located in the County Administrator’s Office and will work with the Inter-agency Staff Coordinating Group. Finding 3: Reliance on the National Guard Armory with its strict rules and regulations limits the effectiveness of the North County Emergency Winter Shelter. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): The National Guard Armory is accessed through a “License to Use State Military Facility” between the County of Santa Cruz and the Military Department, State of California. The License makes the armory facility available for use as an Emergency Shelter nightly between the hours of 6:00 PM through 7:00 AM October 15th through April 15th except “during any period that any organization of the State Militia or of the Armed Forces of the United States is conducting drills or other military training or activity at the armory”. Besides limiting hours of use the License prohibits the use of intoxicating beverages and tobacco, and stipulates daily cleaning requirements. Use of the facility is in accordance with California Government Code §15301-15301.6 as an emergency response operation in order to prevent “the loss of life” of homeless persons during winter weather conditions. The State requires the operator to ensure basic safety and security. Limited nighttime-only access to shelter in a cavernous crowded facility is not a program that anyone would design to effectively end homelessness. The goal of the winter shelter program is to provide emergency night-time shelter. Cold weather emergency shelter does not solve homelessness for individuals but is a last resort humanitarian provision of shelter. Parameters set by the State Military Department are not the primary factor limiting effectiveness of the Armory; it is likely that any site used for this purpose would have many of the same limitations. The primary factors that limit the effectiveness of the Armory are outlined elsewhere in the Grand Jury report, and include the number of beds and the costs associated with transporting clients to the site. Finding 4: The absence of a back-up plan to replace the National Guard Armory threatens the continuing existence of the North County Emergency Winter Shelter program. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): As described above, the Armory is a facility that provides minimal emergency winter shelter. The building is owned by the State Department of the Military and access to it for cold weather shelter is dependent on the State’s ability to provide staffing at the facility. While the State’s ability to provide access is assessed annually, the Military Department has demonstrated a commitment to continue the program. The County and the four cities jointly provide funding to operate emergency winter shelter programs through the Homeless Action Partnership (HAP) and have demonstrated their commitment to emergency winter shelter by providing decades of funding for the programs. On multiple occasions the jurisdictions have sought to identify alternative sites for winter shelter. There are very limited sites that could serve this purpose. Potential alternative sites have been ruled out for reasons ranging from neighborhood concerns, transportation requirements, access to services required to safely run an emergency program (meals, bathrooms, showers) and funding. Finally, an alternative site would require significant investments of financial capital and political will. As stated above, emergency shelter does not end or shorten an individual’s experience of homelessness and the significant reduction of homelessness (44% reduction since 2013 according to the 2015 Santa Cruz County Homeless Census and Survey) can be attributed, at least in part, to prioritizing effective programs proven to end homelessness. These programs include permanent supportive housing and prevention and rapid rehousing. Each of the jurisdictions participates in funding for programs that employ these strategies. The jurisdictions appreciate the Grand Jury’s concern with the issues at the Armory and the jurisdictions will continue to seek alternative sites for emergency cold weather shelter. Finding 5: Insufficient emergency shelter capacity limits access to coordinated entry services for the homeless population. AGREE PARTIALLY DISAGREE - explain disputed portion below X DISAGREE - explain below Response explanation (required for responses other than “Agree”): Developing a coordinated entry system is a key strategy identified in All-In the county-wide strategic plan to address homelessness. A coordinated entry system streamlines and targets crisis response that quickly assess a household’s needs and provides tailored resources for persons in crisis. Coordinated entry is required by the Department of Housing and Urban Development for Continua of Care under the HEARTH Act. The HAP is in the process of developing and identifying funding to implement such a system. The essential premise of a coordinated entry system is to streamline access to services so that there is no “wrong door” for entry to services. While we agree with the Grand Jury’s assessment that emergency shelter is a potential point for a homeless person to access a coordinated entry system, it is not the only access point for services and we are striving to provide a streamlined range of access to homeless services. We fully intend to have all County and City funded emergency shelters participate in the coordinated entry system. Finding 6: Insufficient numbers of personnel and case managers at the emergency shelters limit the services that can be provided to homeless individuals. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): There is no question that case management services are a key component to end homelessness for many individuals. This need is recognized by local nonprofit agencies, jurisdictions, the Homeless Action Partnership and Smart Solutions to Homelessness. Case management support linked with access to housing is the solution to homelessness for a significant share of the people experiencing it and there are shelter programs focused specifically on pairing emergency shelter to case management to lead to permanent housing. Services that are offered at the Armory are limited to those required to operate a safe cold weather shelter. Homeless individuals can and do form relationships and build trust with staff with the Homeless Services Center, the program operator, but case management is not specifically part of the program. There is a much more pressing need for case management services for people who are on a path to permanent housing. Recognizing the role of year round shelter programs to resolve homelessness, HSC has recently adapted their program at the Pau Lee Loft to pair case management with housing resources for people on a pathway to permanent housing. While resources are constrained, we are constantly looking for opportunities for additional case management funding. In the absence of sufficient funding the community has been providing volunteer resources such as the Wings and the Housing Navigator programs associated with the 180/2020 Initiative. Additional case management is supported through Community Grant programs and has been included in an application for CDBG funds submitted by the County. Finding 7: Insufficient number of staff dedicated to grant writing results in missed grant funding opportunities. AGREE X PARTIALLY DISAGREE - explain disputed portion below DISAGREE - explain below Response explanation (required for responses other than “Agree”): When it was announced this spring that the Homeless Services Center (HSC) was not awarded funding through the State’s Emergency Solutions Grant program it became clear that funding and operating a multi-service program is complex and dynamic. Skilled response to varied and changing funding opportunities is a vital component to stability, and the level of staffing dedicated to fund development is determined by HSC. The HAP has been very successful in raising funds for homeless services from federal and State sources, bringing in close to $30,000,000 since 2001.