title
ADOPT A RESOLUTION TO ESTABLISH THE PROPOSED CARE (COMPASSION, ACCESS, REUNIFICATION, EMPOWERMENT) HOMELESSNESS PILOT PROGRAM
recommended action
RECOMMENDATION
It is recommended that the City Council adopt a resolution to:
1. Establish the proposed CARE (Compassion, Access, Reunification, Empowerment) Homelessness Pilot Program, Project no. WC25056;
2. Authorize the Interim City Manager to begin implementation and pursue funding opportunities as outlined;
3. Transfer funds in the amount of $825,000 from the Fiscal Year 2024/25 Public Works Operating Budget to the CARE Homelessness Pilot Program, Project No. WC25056; and
4. Award a contract to Inner City Action of Manteca, CA, in the amount of $297,430 to deliver outreach and temporary shelter for the CARE Homelessness Pilot Program.
It is also recommended that the Interim City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of this resolution.
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Summary
This action authorizes the launch of a multi-pronged pilot program to address homelessness in Stockton through coordinated enforcement, transitional housing, mental health and substance use disorder services, workforce development, and sustainable funding mechanisms. The initiative emphasizes collaboration between law enforcement, non-profits, and government agencies, while balancing accountability with opportunity for individuals experiencing homelessness. The program balances compassion, public safety, legal compliance, and sustainability. It supports immediate enforcement needs while laying the groundwork for long-term housing and social service solutions. Approval will allow City departments to move forward with program launches, funding procurement, and operational coordination.
The initial phase of this pilot program will focus on the Trinity Parkway encampment in Spanos Park. With Council approval, Inner City Action will immediately begin outreach efforts at the encampment as well as applying for all necessary permitting to establish a Transitional Center.
DISCUSSION
Background
Stockton has experienced a marked increase in homelessness, with growing encampments impacting public safety, environmental conditions, and quality of life. In November 2024, the City declared a State of Emergency through approval of Resolution 2024-11-19-1501 (Attachment A), enabling more flexibility in procurement of services related to clean-up, enforcement and unsheltered wraparound services, in mobilizing local resources, and coordinating interagency response.
A considerable amount of state, federal and City resources have been expended to reduce homelessness in the City. Efforts to date have included partnerships with service providers, emergency shelter expansion, and law enforcement support. Since 2019, the City has used federal and state grant resources to invest in housing from low-barrier shelter beds to transitional units, affordable permanent housing facilities, and many variations in between. Shelter Capacity within the County has increased by 60% since 2019 and overall beds will increase by over 750 by the end of summer 2025. Funding was also invested in services: medical, mental health, workforce development and food distribution. In total, over $37 million dollars has been invested to improve the homelessness crisis since 2019, including more intensive services during the COVID pandemic. While grant funding has certain requirements and limitations prescribed by state or federal guidelines, far more funding has been spent on increasing housing units than any other initiative. In 2022 and 2023 a total of 2,287 individuals exited homelessness to permanent housing. Yet homelessness remains a growing concern.
Efforts to date have included partnerships with service providers, emergency shelter expansion, and law enforcement support. However, an integrated and enforceable Citywide strategy has been lacking. Although the City has worked diligently to support housing projects and non-profits that are providing much needed wraparound services, no solution is foolproof or timely, enough. Therefore, a new, additional approach is being proposed through the CARE Program.
By Resolution 2024-11-19-1501, Council approved $550,000 to construct a debris transfer station at the Corporation Yard to expediate trash dumping by City staff and contracted debris removal companies. Additionally, Council approved $225,000 for increased hauling services that would be required to remove trash bins associated to the transfer station. With the transfer of $825,000 from the Public Works FY 2024/25 Operating Budget to the Care Homelessness Pilot Program, Public Works will not be able to deliver the transfer station project or increased hauling services as previously approved by Council. However, staff is working with local recycling facilities to accommodate increased debris dumping.
Present Situation
The proposed plan offers a structured, compassionate, and enforceable approach. Key components include:
1. Enforcement and Public Safety
2. State of Emergency Protocols
3. Centralized Intake and Transitional Housing
4. District-Based Case Management
5. Emergency and Safe Shelter Options
6. Mental Health and Substance Use Services
7. Workforce Development and Reunification
8. Sustainable Funding and Accountability
With Council approval of the proposed resolution, a contract with Inner City Action will be secured via an emergency procurement as allowed for in the Stockton Municipal Code (SMC) and State of Emergency through approval of Resolution 2024-11-19-1501.
Inner City Action (ICA), a nonprofit founded by Frank and Kim Saldana in 1996, has played a significant role in addressing homelessness in Lodi and Manteca, CA, as well as cities across the country. Their approach is unique in that it combines immediate relief in terms of temporary and transitional housing with long-term wraparound supports, including services like showers, haircuts, clothing, and meals. ICA also offers pathways to sobriety, job training, and housing through their Sober Living Facilities and outreach programs.
ICA is unique in providing a one-stop shop” for homelessness services, ranging from temporary safe and sober shelter and basic necessities (food, clothing, daily showers) to supportive services such as case management and individualized thrive plans, girded by temporary and long-term housing support. ICA has the capacity to come in with all resources and launch the completely mobile outreach program within 1-2 days. The organization has demonstrated success in working with large temporary structures in a variety of weather conditions, procuring insurance for necessary facilities and ensuring daily safety monitoring of the housing resource.
In Manteca, ICA has collaborated with local law enforcement and community-based organizations to build trust with homeless individuals, aiming to transition them off the streets. This partnership has reportedly helped nearly 200 individuals find employment and housing. Personal stories highlight transformative successes, such as a mother and her children moving from living in a car to stable housing, and individuals overcoming long-term homelessness and substance addiction.
In Lodi, ICA was approved by the Lodi City Council on April 20, 2022, to operate a temporary emergency shelter as the initial phase of the Access Center Plan. The shelter commenced operations on July 22, 2022, providing overnight accommodations for up to 49 individuals, along with wraparound services such as housing navigation, income advocacy, stabilization planning with focused goal setting, mental health and substance use treatment, and job readiness training.
By September 2023, the shelter had achieved notable outcomes, including transitioning 80 individuals to long-term programs and assisting 31 individuals in securing employment. These results suggest that Inner City Action’s involvement has been effective in reducing homelessness in Lodi, by providing essential services and facilitating pathways to stable housing and employment.
The CARE Program will utilize ICA to provide centralized intake including the use of the federally preferred Homeless Management Information System (HMIS) and transitional housing by offering safe shelter options, showers, clothing and meals. ICA will be the hub of activity and will provide guidance to the City regarding appropriate methods of transition for each client.
The first phase of this pilot program will focus on the area between Trinity Parkway and White Slough. This area is on State of California land, controlled by the State Lands Commission (SLC). Coordination has already begun with the State via a Memorandum of Understanding (MOU) between the City of Stockton and California SLC, which was executed on August 23, 2023 (Attachment B).
Key phases of implementation include outreach, intake, transitional housing, enforcement, and site clean-up. Stockton Public Works Department will serve as lead for all physical clean-up. The pilot program starts with outreach efforts by ICA to provide meals, clothing and showers on-site. In addition, a needs assessment of clients and services will be completed to identify appropriate resources for the inhabitants of the encampment. ICA will then begin to transport inhabitants of the encampment to its intake facility at 3635 Calaveras Road. This facility will offer full wraparound services including:
• Restroom and shower facilities
• Secure sleeping areas
• Daily meals
• Clean clothing
• Evaluation services
• Reunification options
• Workforce and job training
• Mental health and substance use disorder services
• Case management
• Pets, Partners, and Possessions are honored. Possessions will be limited to specific needs of the client.
Once this phase is completed, mobilization of clean-up efforts will begin. Based on current site evaluation Public Works estimates encampment debris at 200+ tons. Given the limited access to White Slough, total cleanup time is estimated at 2-3 weeks. Site cleanup will also include lifting the tree canopy around permitted trees to help law enforcement with future policing efforts of the area.
The CARE Pilot Program is a coordinated effort between:
• City of Stockton Departments
• Stockton Police Department
• San Joaquin County Sheriff’s Department
• San Joaquin County Probation Department
• San Joaquin County District Attorney’s Office
• San Joaquin County Public Works Department
• San Joaquin County Behavioral Health Services
• Inner City Action
• Other City of Stockton Partners
FINANCIAL SUMMARY
With the transfer of $825,000 from the Public Works FY 2024/25 Operating Budget Account No. 4570-003-630006-100-000-30-45-000-000 to the CARE Homelessness Pilot Program, Project No. WC25056, there will be sufficient funding to issue a contract to Inner City Action for $297,430. Remaining funds will be used for clean-up costs and contingencies. Estimated clean-up costs are $400,000.
There is no additional impact to the City’s General Fund or any other unrestricted fund as a result of taking the recommended actions.
Attachment A - Resolution No. 2024-11-19-1501
Attachment B - MOU - CA State Lands Commission
Attachment C - Inner City Action Proposal