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HOMELESSNESS SANITARY AND HYGIENE SOLUTIONS
recommended action
RECOMMENDATION
It is recommended that the City Council evaluate the analysis of six actions to address hygiene issues related to homeless camps and allocate the $250,000 one-time appropriation of General Fund dollars accordingly.
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Summary
At the May 24, 2016 Council meeting, Mayor Silva submitted a proposal for homeless services and requested an analysis by staff. In response, at the August 23, 2016 Council meeting, the City Manager provided a background report concerning Stockton’s homeless population, including research conducted regarding the requested analysis. Along with a companion agenda item regarding the Legislative Committee’s work on tiny and micro houses, the City Council received public comments and engaged in a discussion. The City Council then requested that staff bring back options focused towards sanitary and hygiene issues currently impacting Stockton’s homeless population. Staff analyzed several options including expanding existing shower services, adding mobile showers, porta-potties and handwashing stations, encouraging use of existing public restrooms, providing dumpsters, and homeless encampment clean-ups. Staff also met with the City Manager’s Committee on Homeless Policy to review the options. Staff is recommending the City Council evaluate the analysis of the six actions to address sanitary and hygiene issues and allocate the $250,000 in one-time General Funds approved by Council in the 2016-17 Budget for homeless initiatives accordingly.
DISCUSSION
Background
It is widely known that California has the Nation’s most severe homeless problem. A single solution has been elusive, as no two homeless cases are alike. One might expect that the number of homeless people is rapidly rising. To the contrary, “point in time” homeless counts (the accuracy of which is subject to debate) show declining homeless populations, with California experiencing the largest overall decline in homelessness than any other state between 2007 and 2015.
While accounting for a slight state-wide increase in 2014-2015, the Stockton area experienced a 31% drop in overall homeless counted between 2007 and 2015. The number of homeless counted in Stockton area shelters dropped 46% over the same time period. Interestingly, although the overall number of homeless slightly increased in 2014-2015, only 69% (1,173) chose to enter shelters. Comparatively, in 2013-2014, 83% (1,325) chose to enter shelters. Thus, there may have been a recent shift to the homeless choosing to remain unsheltered. Or, this could have potentially been in line with mild weather in 2014-2015, which recorded an abnormally dry and warm winter.
Many experts attribute the perceived surge in homelessness to increased visibility in public spaces and the rise of social media reporting. Previously, many homeless encampments in Stockton were located in remote areas but it is now more common to see them located near highly trafficked roadways, residences, or businesses. As this visibility has increased, so have the impacts on the non-homeless community. Business owners and residents have expressed concerns about panhandling, urination, defecation, theft, and obstruction of ingress/egress. Passersby and visitors have observed remnants of encampments during their stay and used this to form opinions about this community.
Due to the complicated uniqueness of each case, and resistance by some to accept help, there is no single solution with the capacity to efficiently cover the fluid nature of our entire homeless population. Each individual’s situation requires customized solutions to meet their distinct needs. Stockton is fortunate to have several highly effective, but underfunded, non-profit agencies who each cater to the varying needs of the homeless population. In recognition of the tremendous work of local service providers, Stockton has prioritized homelessness as an issue to be addressed and provided one-time General Fund dollars as well as federal dollars to facilitate the process.
Because the $250,000 General Fund allocation is one-time funding, we need to be cognizant of establishing certain services on a temporary basis, with no strategy for funding beyond a single year. While many local service providers would happily welcome additional funding, it is not desirable to fund a service for one year, establish the trust of the homeless population, and then remove that service after twelve months.
While affordable housing and mental health programs to serve certain populations may represent the core solutions to homelessness, these are part of the long-range plan being addressed by the countywide working group led by Supervisors Miller and Zapien. With the exception of these one-time General Fund dollars, the majority of funding for addressing homelessness is federal and state funding provided to the County.
This analysis has been prepared at the request of the City Council and is intended to provide a variety of options focused on sanitary and hygiene issues in order to advance the framework for the policy decisions to be made concerning one-time funds set aside for homeless initiatives.
As part of this analysis, staff has collected data via several sources to expand on the City Manager’s prior efforts, particularly concerning options related to the sanitary and hygiene issues. Within the local area, this included additional outreach to shelters, service providers, multiple city departments, and the Committee on Homeless Policy. Externally, this involved additional research and outreach to other jurisdictions, service providers, and vendors.
Present Situation
At the August 23, 2016 Council meeting, after receiving public comments and outlining the policy decisions to be made, the Mayor and City Council requested that staff bring back a variety of options focused on sanitary and hygiene issues which require the most immediate attention. These options include analysis for the use of the $250,000 in one-time General Funds allocated by Council in the 2016-17 Budget for homeless initiatives.
OPTIONS
1. Expand Existing Shower Availability Through Service Providers -
BACKGROUND: Stockton Shelter for the Homeless provides men access to hot showers, including soap, a towel, and clothing through their Men’s Shelter around the clock, year-round. However, the Family Shelter is not open to non-clients, therefore women and children that want to shower on a walk-in basis are referred to St. Mary’s. In 2015, the Men’s Shelter served 1,332 unduplicated single men; in addition, approximately 800 non-clients showered.
St. Mary’s Hygiene Center provides access to hot showers, a variety of hygiene products and a clothing exchange on weekdays. In 2015, the Hygiene Center served 61,039 men and 38,323 women and children. Of that number, 25,512 men showered and 11,750 women and children showered. The current schedule follows (afternoons are spent sanitizing and restocking):
1. Women & Children’s clothing and showers
• Monday through Friday 8:00 a.m. - 11:00 a.m. (Showers)
• Monday through Friday 8:30 a.m. - 11:30 a.m. (Clothing)
• Monday through Friday 12:30 p.m. - 2:00 p.m. (Diapers & Baby Formula when available.)
2. Men’s clothing exchange and showers
• Monday through Friday 7:30 a.m. - 11:30 a.m.
• Mondays, Wednesdays & Fridays 7:30 a.m. - 11:30 a.m. (Haircuts)
ANALYSIS: In addition to St. Mary’s, Stockton Shelter already provides around the clock, year-round access for men. Expanding St. Mary’s hours would provide additional accessibility to showers for women and children.
Stockton Shelter for the Homeless allows use of the showers in the Men’s Shelter for male non-clients during the times when St. Mary’s Hygiene Center is closed, and although several men make use of this opportunity each day, they are not at capacity. During the evening when the Men’s Shelter is open and operating, approximately 30 single men per night take showers. Thus, showers are available around the clock 365 days per year between St. Mary’s and the Men’s Shelter. Unfortunately, because Stockton Shelter’s showers are located in the Men’s Shelter, they cannot allow women and children. Stockton Shelter’s Family Shelter clients have around the clock access to showers, but they do not allow use of those facilities for non-clients.
COST & TIMING: Operation costs of St. Mary’s Hygiene Center for 2015 was approximately $300,000, plus $1,600,000 of in-kind donations (including clothing and hygiene products). At an average cost of $1,154 per day, it would cost approximately $60,000 per year to open for one additional weekend day, plus the cost of added security and staff. Likewise, based on the cost estimates provided by St. Mary’s, adding two additional weekend days would cost approximately $120,000, plus the cost of added security and staff. Thus, to open on Saturdays and Sundays would cost approximately $150,000 to $200,000.
CITY MANAGER’S COMMITTEE ON HOMELESS POLICY COMMENTS: While St. Mary’s welcomes additional funding, they would only agree to extend the Hygiene Center’s operations with a more permanent three to five-year funding agreement, as they would need to hire additional staff, and as a best practice, do not desire to build trust and dependability with their clients through providing services that are then taken away twelve months later.
2. Provide Mobile Showers -
BACKGROUND: Non-profits across the U.S. have retrofitted buses, trailers, and other vehicles to include showers and restrooms for the homeless, with water supplied by fire hydrants (through billed meters) and heated by batteries, tankless water heaters, or propane tanks on board. Wastewater is typically drained into city sewers through agreements with local utility districts. Most operations are run by non-profits and volunteers, with donations of toiletries, towels, and clothing exchanges. Locally, the Dream Center mobile shower bus is operated by Inner City Action, Inc. and is available for daily rental.
ANALYSIS: Most mobile shower operations run on a 15-minute cycle, where users sign up in advance for a shower time to avoid waiting in line and have the opportunity to receive other services while waiting. If run efficiently, a single-unit shower operation can serve four people per hour. Mobile unit locations are typically located through partnerships with other homeless service organizations, which are close to both water sources and sewers for water drainage.
Potential negatives include high operating expenses, which may require staff, maintenance of buses and facilities, utilities, insurance, fees/permits, toiletries, and towels. Buses requiring a retrofit, including ADA accessible stalls could present unique engineering challenges. Between St. Mary’s and Stockton Shelter for the Homeless, showers are currently available for men (the largest portion of the homeless population) around the clock, all year round, and they are not at capacity.
Another challenge may be a proper location of the mobile shower bus for use by the homeless. While locations next to encampments may appear to be ideal, there could be opposition from property and business owners. In addition, the buses require a source of water, such as a fire hydrant, and a location for water drainage lines, such as a nearby sewer.
COST & TIMING: A non-profit in the Bay Area utilized four donated buses, which were retrofitted at a cost of $75,000 each to include two full-service restrooms, with an annual operating expense of $125,000 per bus, including water and parking fees. Those operating expenses do not include toiletries, which are typically donated. Retrofitting of buses is less than ideal in that there would be a lengthy design, permitting and construction process.
A local non-profit, Inner City Action, Inc. has immediately available a single-unit ADA-accessible mobile shower bus that does not include a toilet but includes two sinks and a hair cutting station. They are willing to rent the bus to the city for $125 for each day of use or once per week at a cost of $500 per month. The non-profit is willing to supply a separate bus that offers a clothing exchange, and also provide volunteers to coordinate scheduling and handing out of toiletries and towels. However, the non-profit would not cover the cost of propane tank refills to heat the shower water, the cost of water, potential drainage costs, or the cost of an accompanying porta-potty. A rough estimate of potential operating expenses, including propane refills, water usage, and a combination of donated toiletries, would be approximately $60,000 for one year of use at one day per week. If the mobile shower unit were to operate for four hours one day per week, to allow time for set-up and clean-up, it would serve 16 people per day.
CITY MANAGER’S COMMITTEE ON HOMELESS POLICY COMMENTS: This option is generally not the most efficient use of funds as existing service providers have showers available that are not always at capacity. Furthermore, while service providers like the idea of bringing the showers to the people, they feel that case managers and outreach workers would be required to connect users to services and also provide supervision. There is only one designated full-time homeless outreach worker employed by the County, and adding additional sites would take their time, and the limited time of service providers, away from other sites. Moreover, service providers feel that if this option were implemented, it should be provided daily, at consistent sites throughout the city on a weekly basis. They also feel that it would be difficult to provide this service for a single year, and then eliminate it after users have come to rely upon it.
3. Clean-up for Encampments -
BACKGROUND: The Police and Public Works Departments have been working closely for several years to address the public health and safety concerns associated with homeless encampments. These encampments have become more visible, often attracting criminal behaviors and increasing general blight, and left unchecked, create unhealthy living conditions. Up until June 2016 when funding was eliminated from the Department’s budgets, clean-ups had occurred every two to three weeks in conjunction with a small, but growing coalition of service providers and public service agencies.
With the assistance of the coalition and service providers, a more efficient and responsive approach has continued to develop. Being mindful that many in the homeless encampments have a unique distrust of government has helped the city evolve towards a more compassionate strategy, which will take effort to continue to develop.
Since the clean-ups have stopped, there has been a noticeable negative impact on the hygiene situation around encampments and at nearby service providers. While serious criminal activity is addressed when encountered, the primary objective is to provide services to those in crisis, mitigate unsafe and unhealthy living conditions, and prevent establishment of long-term encampments.
Once a problem area is identified, Public Works staff assess the area to determine if heavy equipment or coordination with CalTrans or the California Highway Patrol is required. Public Works then provides the Police Department with a clean-up date, and the Police Department publicly notices the site seventy-two hours in advance to advise that all property must be removed by the clean-up date. Officers make daily contact with those in the encampment to encourage voluntary compliance. They also coordinate with staff from County Mental Health Services and Central Valley Low Income Housing Corporation (CVLIHC) who go to the encampments to offer services to those in need.
On the day of the clean-up, the Public Works and Police Departments work together to remove all persons and property. They are often assisted by service providers and Mental Health. Property of sentimental or monetary value is collected, documented and retained in storage for safe keeping by the Police Department. Hazardous or unsafe property, such as heavily soiled clothing and blankets are documented, photographed, and properly discarded. Larger encampment clean-ups, such as along Mormon Slough, typically remove forty-five tons of trash over a six-hour period.
While the Public Works and Police Departments use this approach for clean-ups, clean-ups and sweeps are also conducted by other agencies, including CalTrans which conducts the clean-ups on the State-owned properties adjacent to the freeways. These other agencies might use different approaches with less notice and outreach, often resulting in more frustration from those in the encampments.
ANALYSIS: The benefit of regular and routine clean-ups of homeless encampments is the management of health and safety concerns. While partnering with service providers, this approach strikes an important and necessary balance between offering critical services, removing unsafe and unhealthy living conditions, and crime/blight enforcement.
On the downside, the perception by those living in the encampments is that they are viewed as criminals and do not appreciate being displaced.
COST & TIMING: The Police and Public Works Departments could reinstate encampment clean-ups and waste disposal immediately. Estimated costs, which include Police and Public Works Department’s staff costs, equipment & dump fees, are as follows:
i. Police Department: 8-12 police officer personnel hours to post, clean and document a small encampment; 30+ police officer personnel hours for larger encampments, such as Mormon Slough.
ii. Public Works Department: 40-50 personnel hours for larger encampments - does not include supervisory oversight.
iii. Equipment costs: $900-$2,500 per clean-up
iv. Dump Fee
v. s: $800-$1,400 per clean-up
CITY MANAGER’S COMMITTEE ON HOMELESS POLICY COMMENTS: This was supported as the best option, with the most immediate need. Per one service provider, since clean-ups have stopped, the visible negative impact on health and hygiene has become “shocking.” Homeless in the encampments are leaving feces, bottles of urine, soaking sidewalks with urine, and digging through trash with bare hands. According to another service provider, there have been outbreaks of preventable communicable infections.
The committee felt that with the limited funding available, reinstating clean-ups would have the broadest immediate impact by helping the public health situation in encampments, respond to complaints by businesses and neighbors, and address the negative perception of passersby and visitors.
4. Porta-Potty and Hand Washing Stations -
BACKGROUND: Porta-potty toilets that were previously provided for the homeless in Stockton were eventually used for drug sales/use and prostitution. In addition, one of the homeless persons began charging others to use them.
This similar issue has been addressed in San Francisco, which started a 6-month pilot program in 2015 called the “Pit Stop,” where pairs of toilets mounted on small mobile trailers are hauled in Tuesdays through Fridays at 2 p.m. and hauled out at 9 p.m. for cleaning. Pit Stop locations developed through a data-driven approach based on requests for service. Full-time attendants, supplied by a non-profit, give each user a five-minute courtesy knock, and also sweep the sidewalks and pick-up trash. The city rents the solar-powered flushing porta-potties. With staffing by the nonprofit, the six-month pilot program cost $140,000.
In Portland, Oregon, a tiny home encampment called Dignity Village installed three porta-potties for use by up to sixty residents and visitors. Other than weekly cleaning, the porta-potties at Dignity Village are not monitored. The porta-potties were at the top of all interviewed residents’ complaints due to sanitation issues, including overflowing waste water, and urine or feces present on the seat, floor, and plastic lock.
ANALYSIS: While porta-potties would provide needed restrooms and hand washing facilities, if left unmonitored, there is a high risk of criminal activities and sanitation issues.
Public restrooms are also available at Stockton Shelter’s Men’s Shelter around the clock, 365 days per year, and at St. Mary’s Hygiene Center and their outside restroom. St. Mary’s outside restroom accounts for its largest maintenance issue, with users ripping sinks and faucets off of walls, drugs, and prostitution. These issues have continued, even after installation of security cameras.
An additional issue concerning the location of porta-potties is the reaction of nearby property or business owners.
COST & TIMING: A quote for standard unmonitored porta-potties and hand washing stations was obtained from Stockton Porta Potty Pros. This quote does not include monitoring of porta-potties, as in the Pit Stop program where the rental and staff costs were $280,000 per year.
o Stockton Porta Potty Pros Quote
§ 1 Standard porta-potty, 28-day rental: $195 + $25 one-time delivery = $220 (includes cleaning once per week)
• $20 quantity discount if 5 or more rented
§ 1 Handwashing station, 28-day rental: $195 + $25 one-time delivery = $220
§ 1 ADA porta-potty, 28-day rental: $245 + $25 one-time delivery = $265 (includes cleaning once per week)
§ Additional cleaning service (more than once per week) = $100 per cleaning, per unit.
§ Note that service providers recommend cleaning daily, thus, for 1 standard porta-potty, 1 ADA porta-potty, and 1 handwashing facility cleaned daily would cost $105,000 per year.
CITY MANAGER’S COMMITTEE ON HOMELESS POLICY COMMENTS: This option is not supported by service providers due to their experience with requiring supervised facilities, and the need for facilities to be cleaned daily.
5. Use Existing Bathrooms (Parks and Community Centers) -
BACKGROUND: There are currently 29 restrooms in public parks available to everyone unless they are temporarily closed for maintenance (mainly due to vandalism) or at the request of the Police Department. Issues with park restrooms include: homeless people living in them, often preventing others from entering; prostitution; drug use and sales; vandalism (destruction of the building and fixtures, graffiti, etc.); arson; defecation outside the building walls and outside of the toilets; and general illicit activities.
ANALYSIS: While this option provides restrooms and hand washing in existing facilities owned by the city, park restrooms are a significant liability for the city in terms of costs for maintenance, repairs, and public nuisance issues. In addition, most parks are located in residential neighborhoods, not near existing services.
COST & TIMING: Varies on a case by case basis, depending on type of issues.
CITY MANAGER’S COMMITTEE ON HOMELESS POLICY COMMENTS: This option is not supported by service providers due to their experience with requiring supervised facilities, the need for facilities to be cleaned daily, and likely opposition of local businesses and neighbors.
6. Provide Dumpsters
BACKGROUND: One of the main issues with homeless encampments is the massive pile-up of trash and waste. Dumpsters could provide an option for safe disposal of this waste and discourage buildup of trash.
ANALYSIS: While this option may encourage homeless to dispose of their trash and waste, others in the community may take advantage of the free dumpsters and haul in outside trash, and it is unknown if the homeless would be willing to use the dumpsters themselves. There is also the potential for homeless to sleep in the dumpsters, as has been a problem in other communities. There is also the potential for drugs/prostitution inside the dumpsters, as it’s a protected space. Again, there is the issue concerning the location of dumpsters as to the reaction of property or business owners.
COST & TIMING: Per the Public Works Department, dumpsters would be available almost immediately at the following costs:
i. 4 cubic yard dumpster (typical for standard business): Pick-up once per week = $187.09/month
ii. 4 cubic yard dumpster (typical for standard business): Pick-up 4 times per week = $631.22/month ($7,575/year)
iii. 7 cubic yard dumpster: Pick-up once per week = $302.00/month
CITY MANAGER’S COMMITTEE ON HOMELESS POLICY COMMENTS: Two of the service providers have previously provided dumpsters and found that the general public will regularly haul in outside trash, quickly filling the dumpsters. Dumpsters would need to be picked up daily to be effective, and would require supervision. From their experience, if trash is not immediately picked-up, the dumpsters quickly overflow, causing users to stack bags around the outside, making it difficult for the trucks to pick them up.
CONCLUSION
Given the uniquely complicated needs of each homeless individual, and the absence of a broad sweeping quick fix with the capacity to efficiently address the ever shifting nature of Stockton’s entire homeless population, the City Council has prudently chosen to focus on tackling the most urgent sanitary and hygienic challenges impacting Stockton’s homeless population.
After reviewing all options with the Committee on Homeless Policy, and analyzing data and research from multiple sources, staff has provided a variety of options focused on sanitary and hygiene issues in order to advance the framework for the Council’s policy decisions to be made concerning the one-time funds set aside for homeless initiatives.
In addition, the team will continue to remain engaged in the countywide homeless solutions working group led by Supervisors Miller and Zapien through to its conclusion. With the exception of these recent funding efforts, the majority of funding for addressing homelessness continues to be allocated to the County by the state and federal governments.
With the support of the Committee on Homeless Policy, staff recommends the allocation of $100,000 in one-time funding to be used by the Police and Public Works Departments for clean-ups of homeless encampments, $50,000 to be set aside until the County’s working group provides recommended actions, with the remaining $100,000 to be allocated to services as determined by the City Council.
Up until recently, clean-ups had been carried out jointly by the Police and Public Works Departments every two to three weeks in conjunction with a coalition of service providers and public service agencies. Since the clean-ups have stopped, the harmful impact on the hygiene and sanitary situation around encampments and nearby service providers is unmistakable. While serious criminal activity is addressed when encountered, the primary objective is to provide services to those in crisis, mitigate unsafe and unhealthy living conditions, and prevent establishment of long-term encampments. Contrary to some comments at the August 23, 2016 Council meeting, each encampment clean-up is posted with notices seventy-two hours in advance of the clean-up, with police officers making daily contact with the homeless to encourage compliance. In advance, and on the day of each clean-up, officers communicate and coordinate with staff from County Mental Health Services and CVLIHC in an effort to provide services to those in need. Property of sentimental or monetary value are collected, documented and retained by police officers in storage. Hazardous, or unsafe property (including heavily soiled clothing, blankets, furniture), are documented, photographed and properly discarded. However, as previously noted, Cal-Trans and other agencies conducting clean-ups do not always use the same approach and use different outreach methods.
The following table is a brief summary of the options that were analyzed for fiscal year 2016-17.
OPTIONS
|
# |
Option |
Description |
Start Timing (Short/ Intermediate/Long) |
Cost (Annual) |
Committee Response (Positive/Neutral/Negative) |
|
1 |
Expand Existing Shower Services |
Expand hours of operation at St. Mary’s Hygiene Center to provide services on Saturdays and/or Sundays |
Short |
$150,000 - $200,000 to open on Saturdays and Sundays |
Positive if 3- to 5-year commitment could be made. Negative if only one-year funding. |
|
2 |
Mobile Showers |
Provide mobile showers to areas away from St. Mary’s and Stockton Shelter |
Intermediate (Depending on source of mobile unit) |
$66,000 for one-day per week (serving approximately 16 people per day) |
Neutral - would only work if can be provided at locations on a regular basis |
|
3 |
Encampment Cleanups |
Provide funding to the Police and Public Works Departments to reinstate cleanups |
Short |
Program previously operated with $125,000 per year. |
Positive - provides overall community benefit |
|
4 |
Porta-Potty and Hand Washing Stations |
Provide porta-potties and handwashing stations at encampments and other locations |
Short |
$105,000 for 2 porta-potties (1 ADA) and 1 handwashing facility cleaned daily |
Negative if facilities aren’t supervised and cleaned daily |
|
5 |
Existing Community Restrooms |
Use restrooms in public parks and community centers |
Short |
Varies depending on facility |
Negative |
|
6 |
Dumpsters |
Provide dumpsters at encampments and other locations |
Short |
$7,575 for 1 4-cubic yard dumpster picked-up 4 times per week |
Negative if dumpsters aren’t supervised and picked up daily |
FINANCIAL SUMMARY
The $250,000 of General Fund dollars will be allocated according to the City Council’s recommendation. Funds are budgeted in account number 010-0131-510.