Title
Supplemental Agreements: Emergency Bridge Housing at Grove Avenue, Meadowview Navigation Center, and the X Street Navigation Center [Two-Thirds Vote Required]
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FileID
File ID: 2024-00966
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Location
Location: 2787 Grove Avenue, District 2, Represented by Councilmember Thao, 2812 Meadowview Road, District 8, Represented by Councilmember Vang, 2970 X Street, District 5, represented by Vice Mayor Maple
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Recommendation
Recommendation: Pass a Motion by two-thirds vote: 1) waiving the requirement for 10-day posting of agreements over $1 million under City Code section 4.04.020(C) and Council Rules of Procedure Chapter 7, Section E.2.d; and 2) authorizing the City Manager or the City Manager’s designee to: a) execute the Eighth Amendment to the Master Administrative Services Agreement No. 2020-0326 for Emergency Bridge Housing Communities with the Housing Authority of the City of Sacramento (Housing Authority) in an amount not to exceed $660,000, for a total not to exceed amount of $20,423,754; b) execute Supplemental Agreement No. 1 to City Agreement No. 2023-0519, for Emergency Bridge Housing at Grove Avenue, with the Sacramento Housing and Redevelopment Agency (Housing Authority) in an amount not to exceed $729,097, for a total not to exceed amount of $3,991,097 and extending the term of the agreement eight months until February 28, 2025; c) execute Supplemental Agreement No. 1 to City Agreement No. 2023-0523, for the Meadowview Navigation Center, with the Housing Authority in an amount not to exceed $1,189,042, for a total not to exceed amount of $4,767,842 and extending the term of the agreement four months until October 31, 2024; d) execute Supplemental Agreement No. 1 to City Agreement No. 2023-1262, for the X Street Navigation Center, with the Housing Authority in an amount not to exceed $2,752,019, for a total not to exceed amount of $7,380,303 and extending the term of the agreement nine months until June 30, 2025; and 4) assign the current City agreements with the Sacramento Housing and Redevelopment Authority for the operation of EBH at Grove Avenue, the Meadowview Navigation Center, and the X Street Navigation Center to the Housing Authority of the City of Sacramento.
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Contact
Contact: Brian Pedro, Director, (916) 808-7816, bpedro1@cityofsacramento.org; Jason Beckstrom, Program Specialist, (916) 808-5709, jbeckstrom@cityofsacramento.org; Department of Community Response
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Attachments
Attachments:
1-Description/Analysis
2-Housing Authority Master Administrative Services Agreement Amendment for Emergency Bridge Housing Communities
3-Housing Authority Emergency Bridge Housing at Grove Avenue Supplemental Agreement
4-Housing Authority Meadowview Navigation Center Supplemental Agreement
5-Housing Authority X Street Navigation Center Supplemental Agreement
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Description/Analysis
IssueDetail
Issue Detail: Homelessness is an issue that impacts communities without regard to geographic or political boundaries and for which there is no single answer or approach. Shelters play a significant role in addressing homelessness and as such it is necessary to create a systemic approach to addressing homelessness which includes low to no barrier crisis shelters. The City of Sacramento recognizes the important role that such shelters play in helping move people out of homelessness and into permanent housing.
The City of Sacramento has made a significant investment of resources to increase the access and availability of shelter beds, services, and permanent housing to those experiencing homelessness. Despite these efforts, homelessness is still a prevalent issue in Sacramento. According to the 2022 Sacramento Point-In-Time (PIT) Count released by the Sacramento County Continuum of Care, the County of Sacramento had a homeless population of 9,278, an increase of 67% since 2019. Of those counted, 72 percent were living unsheltered- which means they were living in a tent, a vehicle, or without any shelter. The results from the 2024 PIT Count conducted in January 2024 are expected this spring.
The City, in partnership with the County, is working hard to expand the capacity of both temporary and permanent supportive housing (housing with services) in the region to provide the continuum housing needed to serve the unhoused including Stay Safe Communities, Tiny Homes, Congregate Shelters, Motel Conversions, and private housing units in Sacramento County.
On March 10, 2020, the City entered into a Master Administrative Services Agreement with the Housing Authority, designated as Agreement No. 2020-0326, for the Housing Authority to provide the City administration, management, and operation (the “services”) of an emergency bridge housing community, more commonly known as EBH at Grove Avenue. This agreement was amended to include additional services and funding for the Meadowview Navigation Center and the X Street Navigation Center ultimately for a total of $19,763,754. Services under this agreement for EBH at Grove Avenue and the Meadowview Navigation Center expired on June 30, 2023, while services under this agreement for the X Street Navigation Center expired on September 30, 2023.
On February 2, 2021, City Council adopted Resolution No. 2021-0029, approving the FY2020/21 Midyear Budget. The FY2020/21 Midyear Budget included several budget and staffing adjustments. One such adjustment included an increase of $660,000 in funding for administration and utilities costs at the Meadowview Navigation Center. Accordingly, $660,000 was wired to the Housing Authority on March 19, 2021, however the $660,000 was not added to the Master Administrative Services Agreement with the Housing Authority. Therefore, this report requests approval to execute the Eighth Amendment to the Master Administrative Services Agreement No. 2020-0326 for Emergency Bridge Housing Communities with the Housing Authority to include the $660,000 from Resolution 2021-0029 for administration and utilities costs at Meadowview Navigation Center.
Additionally, Agreement No. 2020-0326 expired in 2023. However, upon expiration of the Agreement, the Housing Authority held $4,670,158 of unexpended City funds awarded by the Master Administrative Services Agreement.
This report requests approval to: 1) amend the Master Administrative Services Agreement to include the $660,000 from Resolution No. 2021-0029 for administration and utilities costs at Meadowview Navigation Center; 2) transfer the unspent funds from the expired Master Administrative Services Agreement to the current City agreements with the Housing Authority for the operation of EBH at Grove Avenue, the Meadowview Navigation Center, and the X Street Navigation Center; 3) extend the current City agreements with the Housing Authority for the operation of EBH at Grove Avenue, the Meadowview Navigation Center, and the X Street Navigation Center; and 4) assign the current City agreements with the Sacramento Housing and Redevelopment Authority for the operation of EBH at Grove Avenue, the Meadowview Navigation Center, and the X Street Navigation Center to the Housing Authority of the City of Sacramento.
Emergency Bridge Housing at Grove Avenue
In 2020 the City, in partnership with Housing Authority staff, applied for and received $5.6 million of State Homeless Housing, Assistance, and Prevention Program Round 1 (HHAP-1) funds to launch this Tiny Home initiative for a two-year period. Initially 24 cabins were installed which expanded to a total of 50 cabins in 2022. Property at 2787 Grove Avenue, owned by the St. Paul’s Church of God in Christ, was utilized to launch this initiative to assist unhoused transitional aged youth (TAY) ages 18-24 to receive shelter and be stabilized through case management and resources. The cabins are equipped with beds, limited storage space, heating, and air conditioning. Guests also have access to community space both indoors and outdoors to interact with each other.
The Housing Authority entered into an agreement with First Step Communities (FSC) to be the operator of the tiny home community. Operational responsibilities include but are not limited to onsite 24-hour security, providing 3 meals a day, laundry, hygiene, sanitation, and community engagement services. Individualized case management is provided in coordination with social service agencies and other community-based organizations to include assistance for employment, transportation, health and wellness care, and behavioral health assistance. All referrals to fill vacancies come through the Coordinated Access System.
On March 10, 2020, the City entered into a Master Administrative Services Agreement with the Housing Authority to provide the City administration, management, and operation of EBH at Grove Avenue using $5,596,400 of HHAP-1 funds. An amendment to the Master Administrative Services Agreement added $92,500 bringing the total City funding for EBH at Grove Avenue to $5,688,900 from March 2020 through June 2023.
In addition, the Housing Authority leveraged $1.4 million of federal funds in 2022 while waiting for HHAP-3 funds to be released by the state. In May 2023 the City entered into a new agreement with the Housing Authority for the continued operations of EBH at Grove Avenue utilizing $3,262,000 of HHAP-3 funds.
Since operations started in 2020, many youths were successful in securing stable housing and employment with the assistance of FSC and their service providers. Additionally, the cabin initiative has proven to be a successful housing model for homeless TAY. 215 of the 456 guests admitted to the program have arrived with or gained employment during their stay.
All data in the following tables for EBH are for the period June 10, 2020, to February 29, 2024.
|
EBH Details |
Number of TAY |
|
Unduplicated* Guests Served |
456 |
|
Bed Nights Provided |
43,391 |
|
Guest Meals Provided |
86,300 |
*Guests can seek shelter more than once before seeking services.
|
Type of Housing |
Number of TAY |
|
Permanent Housing |
162 |
|
Temporary Housing |
70 |
|
Transitional Housing |
19 |
|
Institutionalized |
29 |
|
Total |
280 |
The following is a summary of funds allocated to operate the shelter over a four-year period.
|
Grant |
Funds (March 2020- June 2024) |
|
City HHAP-1 |
$5,596,400 |
|
City ARPA |
$92,500 |
|
Non-City Federal Funds |
$1,368,508 |
|
City HHAP-3 |
$3,262,000 |
|
Total |
$10,319,408 |
On May 1, 2023 the City entered into a Grant Agreement with the Housing Authority to continue the operations at EBH at Grove Avenue through June 30, 2024. Currently City HHAP-3 funds are being utilized to operate the center. However, the Housing Authority holds $652,187 of unspent City HHAP-1 funds that were allocated in 2020 through an Administrative Services Agreement (ASA) between the City and the Housing Authority that are currently unobligated. In addition, the Housing Authority holds $76,910 of interest income earned from the HHAP-1 grant funds that are unobligated. Staff recommends transferring the $729,097 of unspent HHAP-1 funds and interest income from the 2020 Master Administrative Services Agreement to the current City Agreement with the Housing Authority for EBH at Grove Avenue. Adding these funds will enable operations at EBH at Grove Avenue to be extended eight months until February 28, 2025.
|
|
Unused HHAP-1 Allocation |
HHAP-1 Interest Income |
Total Funds to add to Current EBH Agreement |
|
EBH Funding |
$652,187 |
$76,910 |
$729,097 |
Meadowview Navigation Center
On July 6, 2020, the City amended the Master Administrative Services Agreement with the Housing Authority to include $6,146,830 of HHAP-1 funds for the construction and operation of the Meadowview Navigation Center. The City Public Works Department administered the construction of the site, and the navigation center was open to 100 unhoused women on October 1, 2020. An amendment to the Master Administrative Services Agreement added $220,000 of funding and the amendment to the Master Administrative Services Agreement included in this item adds $660,000 of funding, bringing the total City funding for the Meadowview Navigation Center to $7,026,830 for the construction and operations of the shelter through June 2023.
The Meadowview Navigation Center includes two Sprung Structures (for dining and sleeping quarters), with accompanying restrooms, showers, and administrative space. Three daily meals are provided, and kennels are available for a limited number of pets. The goal of the Meadowview Navigation Center is to house unsheltered homeless women, understand their barriers to housing, stabilize them with services, link them to income resources as necessary, and help them find suitable stable housing. The shelter operates from a housing first, low-barrier approach to provide services and housing support. Priority is given to women living in the surrounding area.
The Housing Authority awarded the contract to operate the Meadowview Navigation Center to Volunteers of America (VOA), who had extensive experience working with the unhoused population in the community. VOA works closely with many partners to provide resources to women. In addition, the Housing Authority contracted with the Downtown Streets team, an organization that works with the guests to develop basic employment skills and clean the area around the shelter. All referrals to enter the shelter come through the Coordinated Access System.
Since operations started in 2020, many women were successful in securing stable housing. Women have also secured jobs at businesses such as the Sacramento City Unified School District, Walmart, Escaton Senior Living, Bel Air Grocery Store, Country House Senior Living, Luther Burbank High School, Dosty Care Home, and others.
All data in the following tables for the Meadowview Navigation Center are for the period October 1, 2020, to February 29, 2024. Re-housing efforts begin upon entry to transition the women into housing within 6 to 12 months.
|
Meadowview |
Services Provided |
|
Unduplicated Guests admitted |
850 |
|
Bed Nights Provided |
85,385 |
|
Guest Meals Provided |
157,740 |
|
Type of HousingWomen Housed |
|
|
Permanent Housing |
206 |
|
Temporary Housing |
58 |
|
Transitional Housing |
1 |
|
Institutionalized |
12 |
|
Total |
277 |
In addition to using the HHAP-1 funds in 2020 to construct and operate the Meadowview Navigation Center, the Housing Authority also leveraged $1,079,688 of federal funds in 2022 while waiting for HHAP-3 funds to be available. In spring 2023, the City entered into a new Agreement with the Housing Authority using $3,578,800 of HHAP-3 funds to continue operations at this site until June 30, 2024.
The following is a summary of funds allocated to operate the shelter over a four-year period.
|
Grant |
Funds (September 2020- June 2024) |
|
State HHAP-1 |
$6,146,830 |
|
City General Funds |
$880,000 |
|
Non-City Federal Funds |
$1,079,688 |
|
State HHAP-3 |
$3,578,800 |
|
Total |
$11,685,318 |
On May 1, 2023 the City entered into a Grant Agreement with the Housing Authority to continue the operations at the Meadowview Navigation Center through June 30, 2024. Currently City HHAP-3 funds are being utilized to operate the center. However, the Housing Authority holds $997,902 of unspent City HHAP-1 funds, and $90,945 of City Measure U funds, that were allocated in 2020 through an Administrative Services Agreement (ASA) between the City and the Housing Authority that are currently unobligated. In addition, the Housing Authority holds $100,195 of interest income earned from the HHAP-1 grant funds that are unobligated. Staff recommends transferring the $1,189,042 of unspent HHAP-1 funds, City Measure U funds, and interest income from the 2020 Master Administrative Services Agreement to the current City Agreement with the Housing Authority for the Meadowview Navigation Center. Adding these funds will enable operations at EBH at Grove Avenue to be extended for an additional four months, until October 31, 2024.
|
Grant Categories |
Unused HHAP1 Allocation |
City Measure U Funds |
Interest Income |
Funds to add to Current Meadowview Navigation Center Agreement |
|
Meadowview Funding |
$997,902 |
$90,945 |
$100,195 |
$1,189,042 |
X Street Navigation Center
On April 15, 2021, the City amended the Master Administrative Services Agreement with the Housing Authority to include $7,708,024 of HHAP-1, Kaiser Foundation, Measure U, and Emergency Solutions Grant (ESG) CARES funds for the construction and operation of the X Street Navigation Center. The center opened its doors on September 21, 2021, to house up to 100 homeless adults on property owned by Caltrans located under Business 80 at the intersection of Broadway and Alhambra.
The site has two Sprung Structures (for dining and sleeping quarters) with accompanying restrooms, laundry and showers, and administrative space for case management services. Through a competitive process, Volunteers of America (VOA) was selected as the site operator and has staff onsite 24 hours a day, seven days a week. Three meals are provided each day, and limited kennels are available onsite.
X Street gives priority to the unsheltered homeless in the immediate vicinity of Oak Park, Curtis Park, and the Alhambra/Broadway corridor. All referrals to enter the shelter come through the Coordinated Access System. VOA operates the Center from a housing-first, low-barrier “come as you are” approach where sobriety and addiction treatment are not conditions to receive services.
Guests receive services on-site and/or are linked to services offsite that meet their individual needs. It includes but is not limited to behavioral health treatment, anger management, addiction recovery assistance, conducting activities of daily living, ready-to-rent training, financial management, employment connections, access to critical documents, arts and crafts, addressing credit/eviction issues, significant re-housing efforts, and much more.
X Street operations started on September 21, 2021, during the heart of the pandemic, which impacted guests’ lives and limited access to supportive services and housing. Despite these challenges, many achievements were accomplished.
Many guests are successful in securing stable housing and many are employed with the assistance of VOA and their service providers. They are employed at Aerotech, Amazon, Smart & Final, Ross Dress for Less, Lowes, Raleys, Sacramento International Airport, FedEx, and many other agencies.
All data in the following tables for the X Street Center are for the period September 21, 2021, to February 29, 2024
|
X Street |
Services Provided |
|
Unduplicated Guests admitted |
874 |
|
Bed Nights Provided |
72,064 |
|
Guest Meals Provided |
379,956 |
Re-housing and employment efforts begin upon entry to successfully transition the unhoused adults into housing within 6 to 12 months.
|
Type of HousingAdults Housed |
|
|
Permanent Housing |
178 |
|
Temporary Housing |
84 |
|
Transitional Housing |
22 |
|
Institutionalized |
37 |
|
Total |
321 |
In addition to the funds allocated in 2021, $4.6 million of HHAP-4 funds were allocated in September 2023 and are currently being utilized to operate the center until September 30, 2024.
The following is a summary of funds allocated to the shelter over a three-year period.
|
Grant |
Funds (September 2021- September 30, 2024) |
|
Kaiser Foundation |
$5,000,000 |
|
State HHAP-1 |
$819,100 |
|
ESG-CV2 |
$762,743 |
|
Measure U |
$1,126,181 |
|
State HHAP4 |
$4,628,284 |
|
Total |
$12,336,308 |
On October 1, 2023 the City entered into a Grant Agreement with the Housing Authority to continue operations at the X Street Navigation Center through September 30, 2024. Currently City HHAP-4 funds are being utilized to operate the center. However, the Housing Authority holds $98,125 of unspent HHAP-1 funding, $1,666,194 of unspent Kaiser Foundation funding, and $897,671 of unspent City Measure U funding that were allocated in 2021 through an Administrative Services Agreement (ASA) between the City and the Housing Authority that are currently unobligated. In addition, the Housing Authority holds $90,029 of interest income earned that is unobligated. Staff recommends transferring the $2,752,019 of unspent HHAP-1 funds, Kaiser funds, City Measure U funds, and earned interest funds from the 2020 Master Administrative Services Agreement to the current City Agreement with the Housing Authority for the X Street Navigation Center. Adding these funds will enable operations at X Street Navigation Center to be extended for an additional nine months until June 30, 2025.
|
|
Unused HHAP-1 |
Unused Kaiser |
Unused City Measure U |
Interest Income |
Funds to add to Current Meadowview Navigation Center Agreement |
|
X-Street Funding |
$98,125 |
$1,666,194 |
$897,671 |
$90,029 |
$2,752,019 |
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PolicyConsiderations
Policy Considerations: 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. The recommendation is to waive this requirement.
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EconomicImpacts
Economic Impacts: Not applicable.
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EnvironmentalConsiderations
Environmental Considerations: This report concerns administrative activities and government fiscal activities that do not constitute a "project" and is not subject to the provisions of California Environmental Quality Act (CEQA) (CEQA Section 15378(b)(2)).
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Sustainability
Sustainability: Not applicable.
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Commission/Committee Action
Commission/Committee Action: Not applicable.
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RationaleforRecommendation
Rationale for Recommendation: The City of Sacramento declared a shelter crisis emergency indicating that there are not enough beds to serve individuals experiencing homelessness and shelter beds need to be made available as soon as possible. The United States Interagency Council on Homelessness recommends that “shelters must be low barrier, focus on assessment and triage, and intentionally link to permanent housing resources so that people move through to housing quickly”.
The Housing Authority’s significant experience in providing housing and services to people in need throughout Sacramento makes the agency a natural partner to the City to administer the shelter operations and re-housing strategy for people experiencing homelessness in Sacramento.
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FinancialConsiderations
Financial Considerations: There are no new funds requested in this staff report. The staff recommendation takes unspent funds that were allocated in a previous agreement to shelters (Emergency Bridge Housing at Grove Ave, the Meadowview Navigation Center, and the X Street Navigation Center) and adds the funds to current agreements and extends the operations at each shelter.
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LocalBusinessEnterprise
Local Business Enterprise (LBE): Not applicable.
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