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HomeMy WebLinkAbout02/02/1988, 1A - CONSIDERATION OF ACCEPTING RAILROAD CARS AS A GIFT TO THE CITY AND THE USE OF THE EMILY STREET RIGHT-OF-WAY AS A SITE FOR A HOMELESS SHELTER FACILITY. I,lu^I�`II�IIIIIII�I II MEETING DATE: lul I M. — Ilk C)v' of �B San Ll,(, iSpo January 19. 1983 Imiommi u COUNCIL AGENDA REPORT FROM: Steve Henderson, Assistant to the City Administrative Officer SUBJECTConsideration of acceptingrailroad cars as a gift to the City and the use of the Emily Street right-of-way as a site for a homeless shelter facility. CAO RECOMMENDATION: Adopt a resolution expressing the City's intent to accept the railroad coaches as a gift from Mr. Emmons Blake if necessary arrangements for the transportation, renovation and siting of the coaches are made and if agreement with a private non-profit organization to operate a homeless BACKGROUND: On November 25, 1987, staff met with Mr. Emmons Blake and discussed his proposal to shelter the homeless in Amtrak coaches on a siding in the Emily Street right-of-way in San Luis Obispo. Staff recommended that he proceed with his idea, but emphasized that it was critical to have it reviewed by local social service providers and the Homeless Coalition. Since that initial meeting, Mr. Blake has met with various groups and individuals informing them of his desire and seeking support for the project. The groups include the Salvation Army, People's Shelter and the San Luis Obispo Coalition for the Homeless. Mr. Blake's request of the City Council is two-fold. One, accept a gift of five Amtrak cars. Two, authorize their use as homeless shelters on Emily Street right-of-way, an unimproved street. SIGNIFICANT IMPACTS The proposal involves significant but undetermined costs, some of which likely would be borne by the City. It represents a step toward a permanent shelter which the City Council has not previously authorized. Resolving remaining issues will require a minimum of 45 days of staff time. CONSEQUENCES OF NOT TAKING THE RECOMMENDED ACTION The proposal may be delayed or dropped. Alternate solutions may be pursued. EVALUATION Mr. Blake has acquired surplus Amtrak coaches from Vandenberg Air Force Base and is the owner. The coaches are presently at the base and he would like to have them hauled from VAFB to the California Mens Colony where inmates would refurbish the interiors. The CMC will not donate inmate labor to private citizens and will do so only if the ownership rests with a government entity. Hence, his gift of the coach cars to the city and our acceptance, is to allow work crews at CMC to begin the rehabilitation project. lA - a- ����i ►�NIIIII���q�lll city of san Luis o8i spo WiN COUNCIL AGENDA REPORT Eventually, Mr. Blake would like to have the city lease, at a reasonable fee, the refurbished coaches to a non-profit organization to manage a shelter program for homeless families and individuals. Although no groups have agreed to operate the proposed shelter program to date, the San Luis Obispo Coalition for the Homeless will be addressing Mr. Blake's idea at their next meeting scheduled for January 11, 1988. Mr. Blake has been working on this idea since the middle of November and has been in touch and negotiated with numerous agencies including Martin Marietta, United States Corps of Engineers, VAFB Corps of Engineers, the Southern California Salvation Army and the Department of Corrections in Sacramento. To date, Mr. Wayne Estelle of the CMC has verbally committed inmate labor for the project, although there is nothing in writing. The United States Corps of Engineers has relinquished ownership of the Amtrak coaches to the Salvation Army of Southern California. The Salvation Army has given ownership of the coaches to Mr. Blake effective December 18, 1987. (See Attachment) Mr. Blake recognizes major and minor obstacles of his proposal and believes none are insurmountable with the Council's assistance. SITE The site on which Mr. Blake would like to locate the coaches is on Emily Street, the Northwest side off Roundhouse Street. It is on unimproved public right-of-way and adjacent property is zoned C-S. The railroad tracks run approximately 1000 feet along the right side of Emily Street. ANALYSIS Mr. Blake's efforts have demonstrated a cooperation from large businesses and agencies. His tireless attempts in coordinating this project are commendable and have produced a tremendous amount of enthusiasm and commitments from a variety of groups. The use of the railroad coaches as shelter for the homeless has received a mixed reception from service providers. The San Luis Obispo Coalition for the Homeless and other social service agencies have been working with the Salvation Army to locate a building to lease or purchase as a permanent long-term shelter facility. Some people believe the railroad coaches concept is stop-gap and expensive. Some groups and individuals believe the money would be better spent on lease or purchase agreements for a building. The use of the coaches on an interim basis would be helpful especially if the Zedakah House Bus Program discontinues on February 1, 1988 and the People's Shelter is not able to secure a church or religious facility for 2 IA - 3 �������it�IIIIIII�P��1p►��IIII city of san tins osispo Mii% COUNCIL AGENDA REPORT use in the month of February. However, it is unlikely that the coaches will be transported from the VAFB to the CMC and refurbished by the inmates and returned to the city in a short period of time. Proponents of the project believe the coaches could be readied by spring. Even though the timing may not be the best to make a reasonable transition between existing programs and the use of the coaches, the ownership of the coaches could still be given over to the city so that the CMC could begin the rehabilitation portion of the proposal. In the interim, staff could review the Emily Street site as a shelter location and determine if the Salvation Army's comprehensive shelter program is nearing fruition. The Council's options would remain open to either consider the coaches as shelters or assist the Salvation Army's shelter, in that event possibly relinquishing ownership of the coaches to another entity. Costs for the refurbishment of the coaches by the inmates is speculative at this time. The labor would be free, but the materials such as the bunks and re-wiring would have to be paid by someone. Mr. Blake estimates the cost at $1500.00 per coach, totaling approximately $7500.00. Each coach would sleep approximately 28-36 people. We would further investigate applicable fire codes which might reduce that number. There are an estimated 100 homeless people in San Luis Obispo, so the rehabilitation of the five coaches should handle this city's homeless population. Presently, the People's Shelter and Zedakah House are operating near capacity by serving 40-50 people per night. The City Council has provided funding to agencies assisting the homeless, or potentially homeless, through the Grants-In-Aid program, and most recently, contracted with the Economic Opportunity Commission for $10,000 to provide temporary emergency shelter during the months of November through January. The City has sought to assist private, non-profit groups with temporary emergency shelter programs. The City Council has not authorized participation in a long-term shelter program at a fixed site. If the City Council chooses to accept the coaches as gifts, the City may be assuming a more direct role in sheltering the homeless on a long-term basis. The use of the Emily Street site for the coaches has many implications. The management and operation of the shelter is undetermined. There may, or may not be, agencies interested in the management of the program while administrative and operational costs need to be determined. The questions surrounding who is going to pay for the programs remains unresolved. Some social service providers feel the operation of five coaches is more difficult and costly than one shelter or building. Toilet or electrical facilities are not available on the site at present. It would appear the costs surrounding the utilities would be higher than a single shelter or building. 3 IA il��lll city of san tuis oBispo COUNCIL AGENDA REPORT In summary, the concept of refurbishing railroad cars for use as homeless shelters is an interesting one. The costs of such a proposal and the absence of social service agencies willing to manage the program may indicate difficulty. ALTERNATIVES I. The Council may choose to accept the railroad coaches as a gift and direct staff to work with the county and the Coalition and to return with a proposal authorizing the Emily Street site as a homeless shelter location. 2. The Council may choose to accept the railroad cars contingent upon identifying a site, management personnel adequate financial backing to support the program. 3. The Council may accept the railroad coaches as a gift in order to have the California Men's Colony begin the refurbishing of the cars at an expense to the City, with the realization that this gives the city the implied responsibility for finding a site. 4. The Council may choose not to accept the railroad coaches as a gift and to not consider the Emily Street location as a site for a homeless shelter program utilizing the railroad cars. CONCURRENCES It is necessary that the staff have more time to work with the county, the Coalition and others before preparing our final report to the City Council. The City Attorney has said that accepting the coaches as they are as a gift to the City, and having the right of disposal, meets all legal requirements. The Police Department has safety concerns over the use of the Emily Street site as a location for a homeless shelter program. The Fire Department may need to evaluate the occupancy factor for the railroad coaches. The Planning Department and Building Inspectors will need to review the use of the Emily Street site for code requirements and considerations. FISCAL IMPACT The cost of refurbishing the railroad coaches has been estimated at approximately $7,500. Staff believes that if no donations of materials are made, the cost could be considerably higher than the estimate. 4 1A -S "'��►�NI�IIIIIII��I�Nu►9�B�N city of San Luis OBlspo A COUNCIL AGENDA REPORT Currently no cost estimates are available for utilities, transportation (including laying short stretches of track) , or operation of a shelter. City funds are not currently available for use on this project, although the Council may consider the use of the general fund. The Grants-In-Aid component of the Human Relations Commission budget has been appropriated for 1987-1988. However, the grants-in-aid process for funding in 1988-1989 has begun and may be a source of revenue. STAFF RECOMMENDATION Adopt a resolution expressing the city's intent to accept the railroad coaches as a gift from Mr. Emmons Blake if necessary arrangements for the transportation, renovation and siting of the coaches can be made and if agreements with a private non-profit organization to operate a homeless shelter program in the coaches are reached. Direct staff to explore the various unresolved issues and return to the City Council with a recommendation within 60 days. Attachments: Letters Draft Resolutions SH:ra 5 RESOLUTION NO. (1988 Series) A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO DECLINING TO ACCEPT FIVE RAILROAD COACHES WHEREAS, Mr. Emmons Blake has offered and requested that the City of San Luis Obispo accept ownership of five railroad coaches so that they can be refurbished for sheltering the homeless; and WHEREAS, the Council recognizes serious unresolved issues with the proposal and does not desire to be the direct operator of a shelter for the homeless. NOW, THEREFORE, BE IT RESOLVED as follows: Section 1 . The City Council hereby declines to accept ownership of five railroad coaches. On motion of seconded by and on the following roll call vote: AYES: NOES: ABSENT: the foregoing Resolution was passed and adopted this day of 1988. MAYOR RON DUNIN ATTEST: CITY CLERK PAMELA VOGES Approved: City Ad inistrative Officer ;1 City A ey Finance Director IA -1 RESOLUTION NO. (1988 Series) A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO EXPRESSING ITS INTENT TO ACCEPT FIVE RAILROAD COACHES WHEREAS, Mr. Emmons Blake has offered and requested that the City of San Luis Obispo accept ownership of five railroad coaches so that they can be refurbished for use in sheltering the homeless; and WHEREAS, the Council recognizes the merit of the proposal and wishes to encourage further evaluation. NOW, THEREFORE, BE IT RESOLVED as follows: Section 1 . The City Council hereby expresses its intent to accept ownership of five railroad coaches if necessary arrangements can be made to use them. Section 2. The City Administrative Officer's office is directed to evaluate arrangements for transportation, renovation and siting of railroad coaches for use as a shelter for the homeless and to explore the option for operating such a facility and report back to the City Council within 60 days. On motion of seconded by and on the following roll call vote: AYES: NOES: ABSENT: the 'foregoing Resolution was passed and adopted this day of 1988. MAYOR RON DUNIN ATTEST: CITY CLERK PAMELA VOGES Approved: City ministr ive Officer City rney Finance Director IA - � EMMONS BLAKE December 23 , 1987 ( Rec ' d your letter 11 :45 , this hand delivered 1 : 35 ) Mr. John Dunn City Administrative Officer 990 Palm Street San Luis Obispo , CA 9340378100 Dear John : Taking your letter a little bit in reverse order I want to assure you that in rereading my letter to Russ Prince of the Salvation Army I used poor judgement , if I employed any judgement at all , in signing it : "Acting for the City of San Luis Obispo" . Under my Federal Emergency Management Agency cloak , I strike fear and trep- idation every time I telephone the Salvation Army . . . as I carefully did with Russ in assuring him that this was Emmons , not the entire might of the FEDERAL GOVERNMENT on his phone . Far better that I had but introduced myself as : "Acting for the huddled Homeless of the City of San Luis Obispo . " But I think all three gag at that! My basic plan is ratherclearly capsulated in paragraph two of the attached copy of the letter to the Salvation Army . And paragraph 3 clearly indicates the City ' s prime hesitancy in the matter as ex- posure to liability . I submit that same exists today on every street, in every doorway and dumpster where the homeless hole up for the night ; because the City by law must afford greater care and protection in direct proportion to the ability of the individ- ual ' s ability to care for himself. . . and that dumpster part is sig- nificant because regardless of the City Attorney ' s protestations to the contrary it remains arguable that the City acting as collec- tions agent , contract negotiator , etc. can limit liability as an agent of and for SL Garbage , and I believe that Roger can write just as effective "hold harmless " clauses in a rental /lease agree- ment with The People ' s Shelter, The Salvation Army (which has expressed nterest in receiving and operating the refurbished coaches ) , etc . But hey , letters are tiresome . I ' ll be happy to meet with any city group . I have spoken at a board meeting of the Peoples ' Shelter , chatted at length with Capt. Hughes , S .A. ; talked intermitably with Geo. Moylan , and learned mostly that he had spent 36 years in the Army and would call me back the next day . . . consumed an hour with Steve Henderson and tried to spoil your lunch hour but just missed you last week . - Councilperson Pinard was fascinated , but reserved either support or renunciation for a later date . Mayor Ounin says that that Housing for Homeless committee has been in e.xistance for over a year and hasn ' t begun to accomplish that which this plan has done in 18 days. So please call me in and hear me out . . . but I beg oVommit on ' t hire another consultant or request an EIR. I remain a ee of one acting for the homeless , huddled masses of San Luio . 634 AL HIL DRIVE • SAN LUIS OBISPO • CALIFORNIA 93401 is - � EMMONS BLAKE 12 December 1987 Mr. Russell Prince , Director of Development Salvation Army of Southern California 900 West 9th Street , Los Angeles , CA 90015 Dear Mr. Prince , Yesterday ' s phone conversation with you regarding the surplus Amtrak/ Air Force coaches was most refreshing and encouraging . Refreshing-- because you answer your own phone , do not employ Muzac during a brief period of "hold" and were fully aware of all aspects of what we were discussing. And encouraging in agreeing that the homeless population of Los Angeles and our Central Coast area differed only in numbers . Our plan is really quite simple : ( 1 ) Acquire coaches from the Civil Engineers at VAFB with ownership vested in the City of San Luis Obispo . ( 2 ) Haul the.. via SPRR to State owned side-trackage adjoining the California Mens Colony prison . ( 3) Employ inmate labor to refurbish interiors , install toilets and shower stalls and approx thirty-two bunks per coach. (4) Place the coaches on City-owned street ( Emily Street) which has 1000 ' + of trackage along it NW side . ( 5 ) Connect utilities , water, electrical and sewer. (6 ) Lease improved coaches to concerned private or volunteer agency to operate as homeless shelter for the old $1/yr. The reason title would be vested in the City is that inmate labor can only be used on tax-supported entities , and ' that labor is the major factor in this whole plan . I concede that there are a few rivers to cross and mountains to scale between items 1 and 6 . The City agrees the plan is superior to funding and constructing a permanent structure , but they are concerned about exposure to liability. . . the SPRR local Trainmaster is concerned about moving "junk" rolling stock on SP tracks . . . the prison , while enthusi - astic about using inmates in a productive community project , points out that some 60 ' of trackage has been removed at the former switch- plate with the SP line . . . and on and on we are confronted with major and minor challenges . The greatest of these is that the Salvation Army has issued a Letter of Intent to the Civil Engineers at VAFB and the Engineers will not abrogate any agreement with your office , but would like the coaches removed. If it is your intention to claim, rebuild and deploy these car, sobeit , we will politely withdraw and scrap our program. If however, your o feels our plan more economically addresses the homeless shelter tua ion , and your Board concurs , we are ready and willing to go to ork . I will call you n xt week , or my number is 805/543-7446 . n rely , `. MW mmons Blake Acting for the City of San Luis Obispo CC: Mayor Ron Ounin SP Trainmaster , D . Green CMC Warden W. Estelle 634 AL HIL DRIVE • SAN LUIS OBISPO • CALIFORNIA 93401 IA - 10 p •NO v The Salvation Army Southern California Divisional Headquarters • s� a a'f°•r'p+ 900 West Ninth Street• P.O.Box 15899 Del Valle Station LOS Angeles.California 90015-0899.12131627-5571 WILLIAM BOOTH.Founder FowidW m 1885 EVA BURROWS.General WILLARD S EVANS.Territorial Commander DAVID P.RILEY,Divisional Commander December 18, 1987 Mr. Emmons Blake 634 Al Hil Drive San Luis Obispo, California 93401 Dear Emmons: This will confirm our telephone conversation of today, December 18, 1987 and formally respond to your letter of December 12th requesting The Salvation Army to release its interest in five Amtrak railroad cars that have been offered to The Salvation Army for refurbishing and utilization. We were most impressed with your proposal to refurbish the cars through inmate labor furnished by The California Men 's Colony Prison and would wish you well in this substantial project. We will certainly be interested in your progress as the project moves forward and appreciate your willingness to involve Captain Daniel Hughes, the Commanding Officer of The Salvation Army, San Luis Obispo Corp concerning his interest in utilizing any of the refurbished cars if and when it seems appropriate. With the very best for the Holiday Season, may God bless you richly for the New Year. Si ce ely, )J,wl Russell Prince, CFRE DIRECTOR OF�BVELOPMENT cc: Major Robert Saunders Captain Daniel Hughes RP:tr IA - ll ��►��a�����►uiii�►i►ii�Illlllfll�llln1°°1°��� II city son tuis oaspo 990 Palm Street/Post Office Box 8100 • San Luis Obispo, CA 93403.8100 December 28, 1987 To: Honorable Mayor and Councilmembers From: Steve Henderso Via: John Dunn Re: Homeless "Players" Update We thought it would be a good time to update the status of most of the groups involved in sheltering the homeless. The description is not comprehensive, but staff can fill in the details if you'd like. 1. San Luis Obispo Coalition For the Homeless (The Coalition) - This organization is presently chaired by George Moylan, Executive Director of the Housing Authority. This fledgling community based group is developing bylaws and other internal structure. The Coalition will meet next on Monday, January 11, 1988 with a full agenda including the rail car rehabilitation project and some recommendations regarding the continued roles of Zedakah House, People's Shelter and the Salvation Army. George's phone number is 543-4478. 2. People's Shelter - The shelter program is operating very smoothly, although some equipment, supplies and volunteers are still needed and liability insurance continues to be a burdensome cost. They are presently housed in the Nativity of Our Lady Church through December and housing 20-25 people each evening. They do turn away some people because of space limitations and inappropriate behavior. The People's Shelter has a commitment from the Old Mission Church to continue housing homeless people through the month of January 1988. The People's Shelter has no site committed for February, but continues to search each day. If no facility is found by February 1, they will consider the National Guard Armory in Atascadero. Betty Nielson's phone number is 544-0695. 3. Zedakah House - Each evening, two busses stop at Mitchell Park and pick up 12-20 single men and women for an overnight stay at Rancho E1 Chorro Park. Their primary group served is made up of substance abusers and mentally ill men, although they do assist women too. � A - la Homeless "Players" Update December 28, 1987 Page Two Zedakah House's contract with the Economic-Opportunity Commission runs out on January 31, 1988, at which time Brad Goans, the Program Director, expects to cease operation. Brad may or may not consider continuing the program if financial assistance is found to fund the program. The Coalition for the Homeless will consider Zedakah House's situation and make a recommendation to the City Council on January 19, 1988. The end of the Zedakah House Shelter Program would mean approximately 12-20 men and women without shelter in the central part of the city. Brad's phone number 549-9315. 4. Salvation Army - Captain Dan Hughes continues his search for a site and funding for a permanent, long-term shelter facility. The Salvation Army was recently recommended for funding an amount of $23,510 from a local board reviewing applications for the Housing and Community Development Department's Emergency Shelter program monies. The recommendation is contingent upon having a specific site by September 1, 1988. They are looking at C-S zoned areas in the city, but are considering the unincorporated areas of the county. Captain Hughes' phone number is 544-2401. 5. Amtrak Cars Proposal - This idea is spear-headed by Mr. Emmons Blake. Mr. Blake is coordinating an effort to place five Amtrak passenger vehicles on tracks near the old Corporation Yard (Roundhouse and Emily Streets) . Mr. Blake's efforts involve several agencies including the Los Angeles Salvation Army, our local Salvation Army, Amtrak, Vandenberg Air Force Base and the Men's Colony. Essentially, his program would house approximately 160 people on tracks as a permanent shelter facility. Mr. Blake has been in touch with some Councilmembers and may bring the proposal to the Coalition for the Homeless for review and consideration. Mr. Blake's phone number is 543-7446. 6. National Guard Armory - The Governor has issued an Executive Order authorizing the use of any National Guard Armories. We have only one in San Luis Obispo County and it is located in Atascadero. Staff's role at this point is minimal; on this we would work with county staff and non-profit groups. Should an organization from the city wish to use the Armory in Atascadero, our role expands considerably including an MOA arrangement. We will keep you apprised of this situation. 7. Other people throughout the city continue with their individual attempts to resolve the homeless problem in San Luis Obispo. Little (if any) structure is present, and most of these folks operate without staff assistance, or guidance by the Coalition for the Homeless. Their individual efforts are commendable; they may attempt to contact Councilmembers individually to share their ideas. IA - 13 Homeless "Players" Update December 28, 1987 Page Three The City Council and staff's task continues to be determining the City's role in this social, human issue. To date, the City has used traditional legislative and police powers to protect public health and safety. The City has assisted private, non-profit groups with funds for temporary emergency shelter programs. The City Council has not authorized participation in a long-term shelter program at a fixed site. Neither has it authorized direct operation of any shelter programs. SH:ra J 12-L O p R— • O O - '-• a a p O O � _ 11_ _-- O ° = OR-2 " " 1o _ t� ° 00 _x Ox 1 O O b� !❑ � _ ®� . 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