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:
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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
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v The Salvation Army
Southern California Divisional Headquarters
•
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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
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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
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