RecipeforFailure:ShrinkingBudgetsandIncreasing

NeedsforEmergencyHomelessShelters

Summary
SantaCruzCountyhasthedubiousdistinctionofrankinginthetoptensmallcitiesin
thenationintermsofthelargestnumberofhomelessindividuals,includingchronically
[1]
homelesspeople.
RecentSantaCruzCountydatashowthatthepopulationof
homelesspersonsisincreasing,reachingapeakof3,536totalhomelessindividualsper
[2]
thelastpublishedcensusin2013,anincreaseof56%since2009.
Despiteincreaseddemandandtheimportanceofemergencyshelters,fundingand
resourcesforsuchsheltersisinadequate,anddiminishing.Nationalfundingpolicies
reflectashifttowardpermanentsupportivehousingforthechronicallyhomeless,thus
restrictingavailablefundingfortemporaryshelters.
TheGrandJuryevaluatedthecityofSantaCruzemergencyshelters,theNorthCounty
EmergencyWinterShelter,andthefundingfortheseshelters.Emergencytemporary
shelters,thoughnotalongtermsolutiontoendinghomelessness,serveanacuteneed.
Demandforthecountysemergencysheltersexceedscapacitywithlongwaitlists,and
manyareturnedaway.Theexistingemergencysheltersareunabletomeettheneeds
ofthelocalhomelesspopulation,providingtemporaryhousingtoonly18%,leaving82%
[2]
unshelteredper2013data.
Theyarealsoshortstaffed,lackingenoughcase
managerstohelptransitionthehomelesspopulationtostablehousing.
TheNorthCountyEmergencyWinterShelter(EWS),locatedattheArmoryin
DelaveagaParkinSantaCruz,isanexpensiveyearlyarrangement.Ithasreduced
effectivenessduetolimitedhoursofoperation,geographicallocation,andthe
conditions,rulesandregulationsimposedbytheowner,TheNationalGuard.Thefuture
oftheexistingEWSisuncertain,withnobackupplansoralternativelocationdespite
ongoingwinterdemand.
TheGrandJuryrecommendsthatfacilities,fundingandstaffingofallemergency
sheltersinthecityofSantaCruzbereassessedtoadequatelymeettheacuteneedsof
thepersistentlyhighhomelesspopulation.Additionalcasemanagersareneededto
facilitatethetransitionofhomelessindividualsoutofshelters.Moregrantwritersare
neededtoaccessuntappedfundingopportunities.

Background
TheDepartmentofHousingandUrbanDevelopment(HUD)definesemergencyshelter
asafacilitywiththeprimarypurposeofprovidingtemporaryshelterforhomeless
persons.Emergencyshelterscanbeanimportantentrypointforthehomelessin
beginningorcontinuingtheprocessofrebuildingtheirlivesandaccessingservices
whichmayleadtostablehousing.ForasummaryhistoryofSantaCruzCounty
homelessservicessee
AppendixA
.
HomelessPopulationinSantaCruzCountyIsSignificantandOnTheRise
WhileCaliforniahouses9%ofthetotalpopulationoftheUnitedStates,itishometo
22%ofthenationshomelesspopulation(136,826people).Accordingtothemost
recentPointinTime(PIT)censussurveyprovidedforHUD,onasinglenightinJanuary
2013,CaliforniarankedNumber1inthenation'shomelesspopulation,almosttwiceas
[1]
manypeopleasthenextlargestpopulation:NewYork,at13%(77,430people).

ThesedataarecollectedbylocalplanningbodiesdesignatedbyHUDasContinuumsof
Care(CoC),whichareresponsibleforcoordinatingthefullrangeofhomelessservices
inageographicarea,suchasourcounty.The2013HUDreportalsorankedSantaCruz
Countyamongsmallercity,county,andregionalContinuumsofCare(CoC)
[1]
as10th
highestinthenationinnumberofhomelessindividuals.Nationally,ourcountyalso
ranked10thhighestinnumberofchronicallyhomelesspeople.Chronicallyhomelessis
definedasremaininghomelessformorethanoneyearorexperiencingaminimumof
[1]
fourepisodesofhomelessnessoverathreeyearperiod.
Themostrecentlyreportedcountysurvey,performedJanuary22,2013byApplied
[2]
SurveyResearch(ASR),
documentedatotalof3,536homelessindividualsinSanta

CruzCounty.Thisrepresentsanincreasefromthe2,771individualscountedinthe
2011censussurvey.Oftheseindividuals,only18%weresheltered,eitherin
emergencysheltersortransitionalhousing.Theremaining82%werelivinginplaces
suchasstreets,parks,vehicles,andadhocencampments.Thehighestconcentration
oftheseindividualswaslocatedinthecityofSantaCruz,atatotalof892persons
(31%),followedbythecityofWatsonvilleat497persons(17%)themajorityofthe
remaining1,372personswerescatteredthroughouttheunincorporatedareaofthe
county.
Ifallthe2,895unshelteredhomelesspersonsinSanta
CruzCountyweretolineupforashelterbed,theline
wouldstretchforonemile.[3]

Inaddition,theASRreportalsoindicatedthat53%ofthehomelessrespondentshad
livedinSantaCruzCountyforthepastthreeormoreyears,and31%fortenormore
[2]
years,bothindicatorsofthechronicnatureofthisprobleminourcommunity.
NumerousfederalandstatefundingstreamsrelyonPITcensussurveystatistics.
However,itisimportanttoacknowledgetheinherentlimitationsofthesedata.Inour
countythedataarecollectedduringonlyonedaypointintime,andonlyonabiennial
basis.Thissnapshotsurveyofthehomelesspopulationmayincorrectlyestimatethe
extentofthissystemicproblem.Itisdifficulttoaccountforthefluxofthehomeless
population,astheyaremobile,withuncertainlivingsituations,fromvehicletoshelterto
afriendsresidence,etc.Potentialunderestimationmightbethecaseincertain
subpopulations,suchas:

homelessyouths
agriculturalworkers
families
thoselivinginplacesnotordinarilydesignedforhumanhabitation
someemployedhomelessindividualswhomightnotbeseenduringthesurvey,
and
[4]
thosewholiveinextremelyruralareas.
HomelessnessImpactsOurCommunity
Costanalysesclearlyindicatehomelessnessovertaxeslocalagencies,suchashealth
[5]
servicesandlawenforcement,resultingintheinefficientuseoffunding.
Thestate
levelreport,
TheAnnualCostofChronicHomelessinCalifornia
summarizesmost,
thoughnotalloftheestimatedcoststocommunities.Costsincurredbychronic
homelessnessareestimatedtobe$25,726$36,388(avg.$31,057)perpersonperyear
(
AppendixB
).
Additionalimpactstoourcountyincludesafety,environmental,financial,andqualityof
lifeissues.TheseimpactswerehighlightedintheResearch,Findingsand
[6]
Recommendations:SantaCruzCityPublicSafetyCitizenTaskForce

andthe2013
[7]
SpecialSessionoftheSantaCruzCityCouncilwhichfocusedonHomelessness.

VagrancyLawsPenalizeandPerpetuateHomelessness
ArecentreportbytheUniversityofCaliforniaBerkeleyLawPolicyAdvocacyClinic
addressingCaliforniasnewvagrancylawsfoundthatCaliforniacitieshaveenacteda
largenumberofantihomelesslawstoaddresstheescalatinghomelesspopulation.The
reportconcludedthatcriminalizationharmshomelesspeopleandperpetuatespoverty
byrestrictingaccesstothesocialsafetynet,affordablehousing,andemployment
opportunitiesandthatenforcementofsuchlawsisexpensive,directinglimited
resourcesawayfromeffortsthatwouldeffectivelyandhumanelyreduce
[8]
homelessness."

HomelessnessandPrematureDeath
TheAnnualReportonHomelessDeathsinSantaCruzCountyenumerated38
homelesspersondeathsin2014.ThisannualreportispreparedbytheHomeless
PersonsHealthProject,aprogramoftheSantaCruzCountyHealthServicesAgency,
andhasenumeratedover600deathssinceitsinceptionin1999.Thegraphbelowisa
distributionofhomelessdeathsbycausein2014.

Source:
AppendixC

Ofthesedeaths29weremaleand9werefemale.Theaverageageatdeathwas51.4
years,over25yearsshorterthanthecurrent78.7yearsaverageAmericanlife
expectancy.
Althoughspecifichousingstatusatthetimeofdeathwasdifficulttodetermine(i.e.
outside,vehicle,hospital,etc.),havingaccesstosheltermayreducethismortalityrate.
Itiswelldocumentedthat,themortalityrateforthoseexperiencingchronic
[2]
homelessnessisfourtoninetimeshigherthanthegeneralpopulation.

LackofAffordableHousingContributestoHomelessness
SantaCruzWatsonvilleranked6thinthenationsmostexpensivemetropolitanareas
forhousing.Theaveragerenterwouldhavetoearnover$30anhourinordertoafford
[9]
a2bedroomrentalunitatfairmarketrent.

Assistanceforlowincomeearnershasdecreased.From19762007,thefederal
housingassistancebudgetwasreducedby50%($28.1billion),accordingtoananalysis
[10]
publishedbyTheNationalLowIncomeHousingCoalition.

TheSantaCruzCountyHomelessActionPartnership(HAP)TenYearPlantoEnd
Homelessness20032013Reportdeclared:Itisnotsurprising,then,thathomeless
peoplehavebecomemoreandmorevisibleinallpartsofthecounty,urban,suburban,
andrural.Shelters,oncehometopeoplewithoutincomes,areincreasinglyfillingwith
workingpeoplewhojustcannotfindoraffordhousingtransitionalhousingprograms,
meanttofacilitateapersonsabilitytotransitionintopermanenthousing,areleftwithout
[4]
exits."

SantaCruzCountyTenYearPlantoEndHomelessness,20032013:No
SubstantiveImprovementinHomelessNumbers
Asthefollowingtabledemonstrates,thePITcensuscountshaveshownnoreal
reductioninhomelessness.
AComparisonofThePointInTimeCensusSurveyinSantaCruzCounty
Homeless

2005PITCensus

2013PITCensus

TotalHomelessIndividuals

3,371

3,536

Sheltered

21%

18%

Unsheltered

79%

82%

[
4]
Source:[2]

TheTenYearPlanwaswrittenbytheHomelessActionPartnership(
AppendixD
)and
sponsoredbyallofthelocaljurisdictions.Itprovidedacommonblueprinttoguidethe
County,theCities,serviceproviders,thebusinesssector,philanthropy,andthebroader
communityinrealizingthevisionofacommunityinwhichallresidentshavestable
[4]
housingandservicestheyneedtoliveindignity...
Whilethemainemphasisofthisplanwastobroadenourcommunitystockofaffordable
housing,itlistedclearobjectivesandactionstepsforemergencyshelters,including:
5
0%morefamiliesandindividualswithoutshelterwillreceiveemergencyshelter
SupportemergencysheltersasanimportantcomponentoftheCoCas,formany
homelessindividuals,theyarethepointofentrytothehomelessservicessystem
ContinuedevelopmentofnewhomelessfamilysheltersinNorthandSouth
County,seekfundingfordevelopment,andencourageparticipationbyall
jurisdictions

 Developanewpermanent(yearround)adultshelterfacilitytoreplacethewinter
armoryshelter
Increasetheavailabilityandaccessibilityofallhealthandhumanservicesand
[4]
casemanagementforhomelesspeopleattheemergencylevel.
TheNextTenYearPlan:AllInTowardaHomeforEveryCountyResident
TheCountyBoardofSupervisors(BOS)approvedanagreementwithUnitedWayof
SantaCruzCountyinearly2014tocompleteanewcoordinatedlongrangestrategic
plantoaddresshomelessnessinourcounty.Therecentlyadoptedtenyearplan,AllIn
TowardaHomeforEveryCountyResident,"highlightsactiontoprevent,reduce,and
eventuallyendhomelessnessinSantaCruzCounty,andamelioratetheimpactof
[11]
homelessnessonallpeople."
Itrecommendsastrategicpriorityoftransformingthe
crisisresponsesystemthroughimplementationofthecoordinatedentrysystem.
Thefollowingaretheplansmostimportantrecommendations(notinorderofpriority):
EstablishacoordinatedentrysystemusingtheVulnerabilityIndexandService
PrioritizationDecisionAssistanceTool(VISPDAT)
ImplementtheHousingFirstinitiative
ExpandPermanentSupportiveHousing(PSH)
Addmoreaffordablehousingforthelowestincomehouseholds
[11]
Increasehomelessnesspreventionandrapidrehousingprograms.

Thenewtenyearrecommendationsnolongerincludeanystatedplanstoimprovethe
funding,capacity,orstaffinginadequaciesforemergencysheltersortodevelopa
permanent,yearroundemergencysheltertoreplacetheEWS.IntheGrandJurys
opinionthisshiftinemphasiswasnotduetoadiminishingoftheimportanceof
emergencyshelter,butwasinsteadapragmaticresponsetomaintainandsecuremore
federalfunding.

Scope
TheGrandJurychosetostudyemergencysheltersforthehomelessinthecityofSanta
Cruz,includingtheprovisionalNorthCountyEmergencyWinterShelter(EWS)located
atTheNationalGuardArmory.WeevaluatedtheprogramsprovidedbyHomeless
ServicesCenter(HSC)andEncompassCommunityServices,thetwomainnonprofit
organizationsthatreceivefundingfromthecountyandcityofSantaCruzforemergency
shelters.WereviewedtheagencyHomelessActionPartnership(HAP),attendedHAP
meetings,PublicForumMeetings,andpresentationsregardingthevolunteerled
organizations.Inaddition,weinterviewedindividualswithpersonalexperienceof
homelessness.TheGrandJuryrecognizestheissueofemergencysheltersintheCity
ofWatsonvilleandsouthcountybutwerenotincludedinthisreportbecauseoftime
constraints.

Weexaminedthefollowingareas:
1) Currentsourcesandlevelsoffundingforemergencyhomelessshelterservices
inthecityofSantaCruzfromallavailablefundingstreams.
2) Currentandplannedfutureprograms/sheltersinthecityforemergencyhousing
ofthehomeless.
3) Availableemergencyshelterbedsinthecity,yearroundandseasonal.
4) Thecityscurrentemergencysheltercapacity,thenumberofpeopleturned
away,aswellasexpectedwaitlisttimes.
5) Potentialrestrictionsthatpreventaccesstoemergencyshelter.

Investigation
EmergencySheltersMeettheTemporaryAcuteNeed
Emergencyshelteringisatemporarysolutionthataidsindividualswithshortterm
housingneed.SeventytwopercentofthehomelesspopulationinSantaCruzCounty
mayonlyrequiretemporaryshelters,rapidrehousing,ortransitionalhousingbasedon
[2]
theirtemporaryacuteneeds,
suchasthosecreatedbyseriouslyinclementweather.
AlthoughPermanentSupportiveHousing(PSH)hasproventobeaneffectivestrategy,
especiallyforthesmallerpercentageofchronicallyhomelessindividuals,addressing
theneedsofthehomelesspopulationmayrequireavarietyofsolutions,including
emergencysheltersforthosewithlesschronicneeds.
EmergencySheltersinCityofSantaCruz
EmergencysheltersinthecityofSantaCruzwhichoperateyearroundwiththe
assistanceofcountyandlocaljurisdictionalfundingincludetheRiverStreetShelter,
operatedbyEncompassCommunityServices,aswellasPaulLeeLoft,RebeleFamily
Shelter,andPageSmithCommunityHouse(transitionalhousing),whichareoperated
byHomelessServicesCenter.(
AppendixE
)Additionalbedsforwintermonthsare
discussedinmoredetailbelowunderEmergencyWinterShelter(EWS)attheNational
GuardArmory.
SantaCruzCountysemergencysheltersareatcapacity,andmanyhomelesspersons
havebeenturnedawayduetolackofspaceandlongwaitlists.Itisestimatedthatthere
isoneavailableshelterbedperevery10homelesspersons.Theaveragewaitlistis6
weeksformen,2weeksforwomen,and6monthsforfamilies.Thetotalnumberof
emergencyshelterbedsinSantaCruzCountywas481pertheJanuary2014Housing
InventoryChart.(
AppendixE
)

SantaCruzCounty2014EmergencyShelterCapacity
YearRound
Beds

FamilyBeds/FamilyUnits
Individual/VeteranBeds

Seasonal
Beds

EmergencyWinterShelters

NorthandSouthCounty

Total
Beds

128

481

353
EWSoperatesNovember15ththroughApril15th
Source
:
AppendixE

Thisbedcountof481forthemonthofJanuary,2014,whencomparedtothe2,895total
unshelteredindividualsidentifiedduringtheJanuary2013PITcensussurvey,yieldsa
shortageof2,419bedsduringthecoldestmonthoftheyear,despitetheadditionof128
seasonalwinterbeds.Evenifoneassumesthatnotallofthosehomelessindividuals
desiredshelter,theneedstillfarexceedstheavailabilityofallemergencyshelterbeds.
DespiteHAPs10yearplan(20032013)toendhomelessness,"the2013PITcensus
surveyindicatesthatlittlehaschangedsince2005,withasteady80%ofthehomeless
populationwithoutshelter
.
EmergencyWinterShelteratTheNationalGuardArmoryisanExpensiveand
UncertainYearlyArrangement
Localjurisdictions(
AppendixF
)havemanagedtopiecetogetherfundingthatprovides
[12]
seasonalemergencyshelterservices.
TheGrandJuryevaluatedtheNorthCounty
EmergencyWinterShelter(EWS),whichisprovidedthroughacollaborationbetween
theHomelessServicesCenterandtheNationalGuardArmory.The20132014budget
[12]
wasapproximately$225,000,for152nightsperseasonofwinter/cold/wetweather.

Thisequatestoacostof$1,480pernightofoperation,withtheentirecostallocated
specificallytowardtemporarynighttimeshelter,classifiedasanemergencyresponse
operationinordertopreventthelossoflifeofhomelesspersonsduringwinterweather
[12]
conditions.

TheNorthCountyEWSgoalistoprovidetemporaryseasonalshelterforanaverageof
75homelessindividualspernight,about2%ofthecensus.Clientsmustsignupby3
pmattheHSCeachdayforthatnightandaretransportedfromtheHSCbybusata
designatedtime.TherearenodaytimehoursattheEWS,forcingclientstoinhabit
publicareas.NorehabilitationservicesareofferedattheEWSnoneareplanned.
TheArmorysavailabilityforwintershelterhasbeenuncertainforyears.Allprevious
effortstofindamorepermanentsiteforNorthCountyEWShavefailed,aslocal
jurisdictionshavebeenunabletoagreeonalocation.Therearenoplansinplacefor
alternativesshouldtheArmorysuddenlybecomeunavailable.Thisstateofuncertainty
haspersisteddespiteobjectivestolocateamorepermanent,yearroundshelterinthe
20032013HAP10yearPlantoEndHomelessness,"andthe1989GrandJuryreport
recommendations.

WarmingCenter
Anewlyformedvolunteerledgrassrootsorganization,theWarmingCenter,was
assembledinlate2014withthemissiontohelpprovideshelterwhenweather
conditionsbecomedangerouslyinclement.Theirfirsttwonightsofoperationwereat
CalvaryEpiscopalChurchindowntownSantaCruz,whichprovidedshelterto
approximately100homelessindividualswhosoughtshelterduringtherainstormsin
December2014.TheWarmingCenterwasat75%capacityduringthesetwonights,
helpingtosheltertheoverflowofhomelesspersonsfromemergencysheltersinthecity
ofSantaCruz.
TheWarmingCenterslightlyincreasedemergencyshelteringcapacitytoapproximately
3%ofthehomelessforthetwonightsofpredictedfreezingtemperatures.Thenumber
ofhomelessindividualsservedunderscoredtheneedforsufficientwintershelter
capacity.
ShiftsinNationalTrendsandPoliciesTowardPermanentSupportiveHousing
AffectFundingStreamsForEmergencyShelters
TheshiftinnationaltrendsandpoliciestowardPermanentSupportiveHousing(PSH)
hascomefromdecadesoffailuretoendournationalhomelessnessproblem.
ShorttermFEMAstylesheltershaveproventobeinadequate.Federalagencies
responsibleforthesepoliciesandassociatedfundingincludetheDepartmentof
HousingandUrbanDevelopment(HUD),theDepartmentofVeteransAffairs(VA),the
DepartmentofHealthandHumanServices,andtheInteragencyCouncilon
Homelessness.
[13]
SantaCruzCountysHomelessActionPartnership(HAP)
hasfunctionedasthelocal
conduittostateandfederalgrants,andhelpscoordinategrantfunding.SantaCruz
CountywasanearlyadopterofthenewpoliciesemphasizingPermanentSupportive
Housing(PSH),withourfirstunitbuiltin2000.

Since2000,SantaCruzCountyhasbeenawardedapproximately$20millionof
ContinuumofCare(CoC)funding.CoCfundingrepresentsHUDslargestandmost
broadlytargetedprogram.Itprovidesinfrastructuretoimplementacomprehensive
planningapproach,datacollection/analysis,andperformancemeasures.Thisisthe
largestsourceoffundingSantaCruzCountyhasreceivedtowardending
homelessness.
OngoingfundingawardsaretiedtothenationalpolicyshifttowardPermanent
SupportiveHousing.BonusfundingawardedthroughHUDistiedtoPSH,leadingtoour
localjurisdictionalstrategythatallocatesverylittlefundingtowardemergencyshelters.
AgencypersonnelinterviewedstatedthatHUDfundingforSantaCruzCountywould
ceaseifweweretochangeourprioritiestoallocatefundsonlyforemergencyshelters.

Thesechangeshavedramaticallyreducedfundingforlocalemergencyshelters.For
example,

HAPs2014rankingsoutofatotalawardof$2,274,747wereasfollows:
69%($1,573,125)topermanenthousing
26%($586,801)totransitionalhousing
5%($114,821)toHomelessManagementInformationSystem(HMIS)and
[14]
planning

TherearenofundsallocatedtoemergencysheltersfromHAPsrankings.
AdditionalFundingSourcesCouldHelpSupporttheHomelessPopulation
Fundingdesignatedforpermanentsupportsolutionsbenefitspeopleinemergency
sheltersbyallowingmorehomelesspeopletomovethroughtheContinuumofCare
(CoC).
SignificantgrantmoniespursuedbyHAPincludeEmergencySolutionsGrant(ESG),
HUDsHOMEInvestmentPartnershipProgram,andVeteransAffairsSupportive
HousingProgram(HUDVASH).
Additionalsourcesoffundingmayinclude,butarenotlimitedtothefollowing:
Medicaidfundedhealthservices,withexpandedeligibilityduetotheAffordable
[15]
CareAct

GrantsawardedbytheSubstanceAbuseandMentalHealthServices
Administrationtoprovideservicesandtreatmentneededtoassistthechronically
[16]
homelesstostayhousedinpermanentsettings

TheRuralHousingStabilityAssistanceProgramthroughHUD,where
[14]
applicable

AkeymethodofaccessingMedicaidfundinginvolvesqualificationforSSI
(SupplementalSecurityIncome),whichcanbeespeciallydifficultforthechronically
homelessindividualswholack

adequatedocumentationoftheirdisabilities.Sincemost
chronicallyhomelesspersonsareneitherreceivingSSInorcoveredbyMediCal,local
governmentsbearmostofthehealthcarecostburden.Thisfundingisespeciallyuseful
asithelpstokeepchronicallyhomelessindividualsinpermanentsupportivehousing,
andcaninclude:
coverageofcommunitymentalhealthservicesthroughtheMedicaid
RehabilitationOption
casemanagementservices
employmentrelatedskillsandsupportedemployment
FederallyQualifiedHealthCenterstoprovideneededservicesreimbursedby
Medicaid
homeandcommunitybasedwaiverservices
[15]
personalservices
TheLosAngelesSkidRowHomelessHealthcareinitiative,begunin2005,implemented
strategiestoimproveSSIapplicationsandsecurefunding.Byassigningtwohighly
experiencedregisterednursestoretrievenecessarydocumentationfrommultiple
countypublichealthcarefacilities,eachwithitsowndatamanagementsystemand

software,theysucceededinobtainingSSIfundingfor62%offirsttimeapplicants.They
thendesignedamultiagencycollaborativeteamtohelpoutwithallaspectsofthe
applicationprocess,whichachieved91%approvalsuccessinaccessingSSIfortheir
[15]
mostvulnerablechronicallyhomelesspersons.
IntheSantaCruzCounty2013PITcensussurvey,25%oftherespondentswere
ineligibleforgovernmentalservicesduetolackofapermanentaddress,and24%
[3]

simplydidnotthinktheywereeligible.
Of69%totalrespondentsper2013PITcensus
survey,whoreportedreceivinggovernmentbenefits,only17%wereidentifiedas
[2]
[3]
MediCal/Medicarebeneficiaries.
AsdemonstratedbytheLosAngelesexample
above,caseworkersandateamapproachcouldhelplocateandaccessadditional
supportforthesehomelessindividuals.Usingallofthesetoolstoassisthomeless
individualswouldfreeemergencyshelterbedsforemergencyuse.
CoordinatedEntry:EmergencyShelterasaPointofEntry
SantaCruzCounty,inpartnershipwithlocalagencies,isworkingtoimplementa
coordinatedentrysystemtohelpstreamlinetheprocessofconnectingthehomeless
individualtohousingandservices.Thisprocesswillhelpprogramstoshiftfromthe
commonquestionofshouldweacceptthisfamily/individualintoourprogram?tothe
moreefficientandtargetedapproachofwhathousingandservicestrategyisbestfor
[17]
thisfamily/individualoutoftheseveralhousing/serviceoptionsavailable?
Ifthereare
insufficienthousingoptions,thisbecomesamootpoint.
Nationalstrategieshavebeendevelopedandproventobeeffectiveinother
communitiestomanageshelterwaittimes,andtoidentifyandprioritizehomeless
[18]
individualsforhousingaccordingtothefragilityoftheirhealth.

SantaCruzCountyis
transitioningtothesebestpracticestrategiesandtoolstoensurethatallservice
providersarecollectingthesamedemographic,clienthistoryandhousingbarrier
[19]
informationatthetimeofintake."
Thiscoordinatedentrysystemisespeciallyefficient
[11
]
whenemergencysheltersareapointofentryandareavailable.

CaseManagers
Skilledcasemanagersserveasthebridgebetweenaparticularhomelessindividual,
withhis/herspecificneeds,andthetailoredsupportsystemthatcanhelptheindividual
toachievestabilityandlongtermtenancy.Thepresenceofacasemanagerandthe
sizeofeachmanagerscaseloadaremajordeterminantstothesuccessofstable
tenancyamonghomelesspopulations.Forexample,theHUDVASHprogramviews
casemanagementasakeycomponent,requiringeachveterantobeassignedacase
managerpriortoenrollmentinthisprogram.Theirgoalisaratioof1casemanagerto
[20]
25veterans.
Currently,SantaCruzCountybudgetsfortwocasemanagers,staffedatHSC,witha
ratioofapproximately1casemanagerto40clients.Despitetheirhighcaseloads,the
twocasemanagershavealreadyproventheireffectiveness.TheGrandJurylearned
fromadministratorsthattheapproximately$40,000annualsalarypercasemanager
translatesintosheltering2025homelessindividuals.Withcostsofapproximately

$31,000perpersonperyearofchronichomelessness,investinginadditionalcase
managerscouldresultinconsiderablesavingstotheSantaCruzCountycommunity
(AppendixB
).
Casemanagercoordinationisparticularlycosteffectivewiththechronicallyhomeless
subpopulation,whichincursthemostcosttothepublic,orforthoseindividualswho
makefrequentuseoftheemergencyroomorviolatemunicipalcodes.Aspreviously
referenced,estimatedyearlycoststoCaliforniacommunitiesareapproximately$31,000
perpersonperyearofchronichomelessness,vs.$4,952whensupportedinPermanent
[21]
SupportiveHousing(PSH).

The2013PITcensusfound989chronicallyhomelessindividuals(28%oftotal3,536
homelessindividualssurveyedinthecounty).Theoptimalnumberofcasemanagers
requiredtoservethemwouldbeabout40,usingbestpracticesstandardof1525
[21]
individualspercasemanager.
Withevenafewadditionalcasemanagerstohelp
bridgethisunmetneed,costsavingstothepubliccouldfarexceedthecostofthe
additionalcasemanagers.TheGrandJuryrecognizesthatsuccessoftheutilizationof
casemanagementdependsonadequatehousingandtheavailabilityofother
resources.
SolutionsComeSlowlyStillaNeedforEmergencyShelters
TheGrandJuryconcludesthatthefollowingfactorsdemonstratethecontinuingand
increasingneedforemergencysheltersinSantaCruzCounty:

thepersistentlyhighnumberofhomelesspersons,withdiverseneeds
thehighcostsofhousingandlowavailabilityofsupportivehousing
limitationsoffundingsources
staffingcosts
insufficientemergencysheltercapacity
lengthoftimeneededtodevelopPermanentSupportiveHousing(PSH)for
chronichomelessindividuals

PSHcannotbeimplementedquicklyenoughtoavoidtheneedforemergencyshelters
fortheforeseeablefuture.Forthe72%ofthehomelessindividuals(nonchronic)in
SantaCruzCounty,emergencyhousingservesacrucialneed.Emergencyshelter
needstobeavailableforthemostvulnerable,withoutawaitlist.Ourshortageof
emergencysheltersupplymustbeaddressed.

Findings
F1
. Localjurisdictionshavenotprovidedadequateemergencysheltertoaccommodate
thevastmajority(80%)ofthemorethan3,500totalhomelesspersonsinSanta
CruzCounty(using2013PITdata).
F2. Despitepersistentunmetneed,localjurisdictionshaveneitherincreasednor
plannedtoincreasethenumberofemergencyshelterbedsandservices.
F3. TheeffectivenessoftheNorthCountyEmergencyWinterShelterislimitedbyits
relianceontheNationalGuardArmoryfacility.

F4. TheabsenceofabackupplantoreplacetheNationalGuardArmorythreatensthe
continuingexistenceoftheNorthCountyEmergencyWinterShelterprogram.
F5. Insufficientcapacityofemergencyshelterslimitstheirpotentialuseasanentry
pointtotheplannedcoordinatedentrysystem.
F6. Insufficientnumbersofpersonnelandcasemanagersattheemergencyshelters
limittheservicesthatcanbeprovidedtohomelessindividuals.
F7. Insufficientnumberofstaffdedicatedtograntwritingresultsinmissedgrant
fundingopportunities.

Recommendations
R1. SantaCruzCountyBoardofSupervisorsandthecitiesofSantaCruz,Capitola
andScottsValleyshoulddevelopplanstoprovideincreasedemergencyshelteron
aprioritybasistothemostvulnerablepopulationsfirst,includingfamilies,youth,
women,andtheelderly.(F1F6)
R2. SantaCruzCountyBoardofSupervisorsandthecitiesofSantaCruz,Capitola
andScottsValleyshouldseekamorepermanent,accessibleandexpandablesite
fortheNorthCountyEmergencyWinterShelterprogram.(F3,F4)
R3. SantaCruzCountyBoardofSupervisorsandthecitiesofSantaCruz,Capitola
andScottsValleyshouldallocatemorefundsforadditionalcasemanagersforthe
localemergencyshelters.(F6)
R4. SantaCruzCountyBoardofSupervisorsandthecitiesofSantaCruz,Capitola
andScottsValleyshouldallocateadditionalstafftoseekmoregrantfundingfor
emergencyshelters.(F7)

Commendations
C1. TheGrandJurycommendsSantaCruzCounty,theHomelessActionPartnership,
localjurisdictions,andnonprofitorganizationsfortheircollaborativeeffortsto
implementevidencebasedprogramsandsolutions,includingthecoordinated
entrysystem,torelievehomelessness.
C2. TheGrandJurycommendslocaljurisdictionsandnonprofitorganizationsfortheir
ongoingcollaborativeeffortstofundandoperatelocalemergencyshelters.

ResponsesRequired
Respondent

Findings

Recommendation

RespondWithin/
RespondBy

F1F7

R1R4

90Days
9/10/2015

F1F7

R1R4

F1F7

R1R4

F1F7

R1R4

Findings

Recommendation

F1F7

R1R4

F1F7

R1R4

SantaCruzCounty
Boardof
Supervisors
SantaCruzCity
Council
CapitolaCity
Council
ScottsValleyCity
Council

90Days
9/10/2015
90Days
9/10/2015
90Days
9/10/2015

ResponsesRequested
Respondent
HomelessServices
Center,
ExecutiveDirector
Encompass,
ChiefExecutive
Officer

RespondWithin/
RespondBy
90Days

9/10/2015
90Days

9/10/2015

Definitions

AHAR
:
AnnualHomelessAssessmentReporttoCongress
ASR
:
AppliedSurveyResearch
ConductsthebiennialhomelessPITcensus
andsurveyasmandatedbyHUD.
www.appliedsurveyresearch.org
BOS
:
BoardofSupervisors
ThelegislativegoverningbodyoftheCountyof
SantaCruz.
Chronicallyhomelessindividual
:Unaccompaniedindividualwithadisabling
conditionwhohaseitherbeencontinuouslyhomelessfor1yearormoreorhas
experiencedatleastfourepisodesofhomelessnessinthepast3years.
Chronicallyhomelesspeopleinfamilies
:Peopleinfamiliesinwhichthehead
ofthehouseholdhasadisablingcondition,andthathaseitherbeencontinuously
homelessfor1yearormoreorhasexperiencedatleastfourepisodesof
homelessnessinthepast3years.
CoC
:
ContinuumofCare
Localplanningbodiesresponsibleforcoordinatingthe
fullrangeofhomelessnessservicesinageographicarea,whichmaycovera
city,county,metropolitanarea,orevenanentirestate.

Coordinatedentrysystem
:Aprocessthatensuresthatallserviceprovidersare
collectingthesamedemographic,clienthistoryandhousingbarrierinformationat
thetimeofintake.TheintakesheetcollectsinformationtobeenteredintoHMIS
andisaimedatincreasingtheefficiencyofprovidinghomelessassistancevia
accesstoaccuratedata.
EmergencyShelter
:Afacilitywiththeprimarypurposeofprovidingtemporary
shelterforhomelesspersons,"perHUDdefinition.
EWS
:
EmergencyWinterShelter
Programtoprovidesheltertohomeless
individualsandfamiliesduringthecoldandrainymonths,operatingNov.15
throughApril15.ForthepurposesofthisGrandJuryReport,EWSrefersonlyto
theNorthCountyprogram,providedthroughcollaborationbetweenHSCandthe
NationalGuardArmoryundertheauspicesofHAP.TheArmoryprovides
shelteredhousingandHSCmanagestheprogramunderCountycontract,
approvedbytheCountyBOS.
FEMA
:
FederalEmergencyManagementAgency
CreatedbyPresidential
ReorganizationPlanin1978andimplementedin1979,withtheprimarytaskof
coordinatingtheresponsetoadisasterintheUSthatoverwhelmstheresources
oflocalandstateauthorities.
www.FEMA.gov
HMIS
:
HomelessManagementInformationSystem
Asecuredatabaseofthe
homelessandhousingmandatedbyHUDandadministeredbyHAPthatallows
authorizedstaffatpartneragenciestoshareclientinformationandfollowtrends
andservicepatternsovertime
HUD
:
USDepartmentofHousingandUrbanDevelopment
Thefederal
departmentthatisinchargeofreleasingtheAnnualHomelessAssessment
ReporttoCongress
HUDVASH
:
HUDVeteransAffairsSupportiveHousingProgram
A
collaborativeinitiativebetweenHUDandVAintendedtotargetthemost
vulnerable,needy,andchronicallyhomelessveterans.
PSH
:

PermanentSupportiveHousing
Designedtoprovidehousing(projectand
tenantbased)andsupportiveservicesonalongtermbasisforhomelesspeople
withadisability.
PointinTimeCounts
:Unduplicated1nightestimatesofbothshelteredand
unshelteredhomelesspopulations.The1nightcountsareconductedby
ContinuumsofCarenationwideandoccurduringthelastweekinJanuaryof
eachyear,althoughinSantaCruzCounty,theyaredonebiennially.
PSCTF
:
PublicSafetyCitizenTaskForce
A14membertaskforcechargedby
SantaCruzCityCouncilApril9,2013thatpublisheditscompletedReport
December2013.
County
:
SantaCruzCounty
Sepsis
:Thepresenceinthebloodorothertissuesofpathogenic
microorganismsortheirtoxins.
Shelteredhomelesspeople
:Peoplewhoarestayinginemergencyshelters,
transitionalhousingprograms,orsafehavens.

TransitionalHousingProgram
:housingwherehomelesspeoplemaystayand
receivesupportiveservicesforupto24months,andwhicharedesignedto
enablethemtomoveintopermanenthousing
Unshelteredhomelesspeople
:Peoplewithaprimarynighttimeresidencethat
isapublicorprivateplacenotdesignedfororordinarilyusedasaregular
sleepingaccommodationforhumanbeings,includingacar,park,abandoned
buildings,busortramstation,airport,orcampingground.
VISPADT
:
VulnerabilityIndex&ServicePrioritizationDecisionAssistanceTool

Atoolforidentifyingandprioritizingthestreethomelesspopulationforhousing
accordingtothefragilityoftheirhealth.Itisadministeredinaformofasurvey
whichcapturesahomelesspersonsindividualhealthandsocialstatus,
identifyingthemostvulnerablethrougharankingsystemwhichtakeintoaccount
theriskfactorsandchronicityofhomelessness.Thegoalistohighlightthose
withthemostseverehealthriskstobeprioritizedforhousingandsupport
services.

Sources
References
1. The2013AnnualHomelessAssessmentReport(AHAR)toCongress:Part1
PointinTimeEstimatesofHomelessness.Accessed4/15/15.
https://www.hudexchange.info/resources/documents/AHAR2013Part1.pdf
2. 2013SantaCruzCountyHomelessPointInTimeCensus&Survey
ComprehensiveReport.Accessed4/15/15.
www.appliedsurveyresearch.org/storage/database/homelessness/santacruz/Hom
eless2013_SantaCruz_FullReport.pdf
3. InfographicExecutiveSummary2013CountyPIT.Accessed4/15/15.
https://www.google.com/url?sa=t&rct=j&q=&esrc=s&source=web&cd=2&cad=rja
&uact=8&ved=0CCUQFjAB&url=https%3A%2F%2Fwww.scribd.com%2Fdoc%2F
178516087%2FInfographicExecutiveSummarySantaCruz2013&ei=mpjuVI2bM
omooQS_w4LYCw&usg=AFQjCNFTJDpyDxPfI9opeEgvoAip9nE3uA
4. SantaCruzCountyHomelessActionPartnership:TenYearPlanToEnd
Homelessness,"20032013.Accessed4/15/15.
http://www.ctagroup.org/wpcontent/uploads/SantaCruz10YearPlan.pdf
5. PermanentSupportiveHousing:AnOperatingCostAnalysis,"Corporationfor
SupportiveHousing,2011.Accessed4/15/15.
http://www.csh.org/wpcontent/uploads/2011/12/Report_OperatingCostAnalysis.p
df
6. Research,FindingsandRecommendations:SantaCruzCityPublicSafety
CitizenTaskForce,"Dec.2013.Accessed4/15/15.
http://www.cityofsantacruz.com/home/showdocument?id=35125
7. Brown,J.M.SantaCruzServiceProvidersUrgemoreSupportinSpecial
CouncilSession,"SantaCruzSentinel,April30,2013.Accessed4/15/15.
http://www.santacruzsentinel.com/20130430/santacruzhomelessservicesprovi
dersurgemoresupportinspecialcouncilsession

8. CaliforniasNewVagrancyLaws:TheGrowingEnactmentandEnforcementof
AntiHomelessLawsintheGoldenState.UniversityofCaliforniaBerkeleyLaw,
PolicyAdvocacyClinic,February,2015.Accessed4/15/15.
http://papers.ssrn.com/sol3/papers.cfm?abstract_id=2558944
9. Arnold,Althea,etal.OutofReach2014:TwentyFiveYearsLater,The
AffordableHousingCrisisContinues.NationalLowIncomeHousingCoalition.
Accessed4/15/15.
http://nlihc.org/sites/default/files/oor/2014OOR.pdf
10. Dolbeare,CushingN.,andCrowley,Sheila.ChangingPriorities:TheFederal
BudgetandHousingAssistance19762007.NationalLowIncomeHousing
Coalition,Washington,DC,August,2002.Accessed4/15/15.
www.NLIHC.org
.
11. UnitedWayofSantaCruzCounty,HomelessActionPartnership,andSmart
SolutionstoHomelessness,organizersoftheCountywideStrategicPlanto
prevent,reduce,andeventuallyendhomelessness,April,2015.AllInToward
AHomeForEveryCountyResident:TheSantaCruzCountyCommunity
StrategicPlantoPrevent,Reduce,andEventuallyEndHomelessness."
Accessed6/4/15.
https://www.unitedwaysc.org/sites/unitedwaysc.org/files/civicrm/persist/contribute
/files/FINAL%20DRAFT%20All%20In%20Santa%20Cruz%20County%20Homele
ssness%20Plan%20for%20Posting.pdf
12. CountyofSantaCruzReportonThe201314EmergencyWinterShelter
ProgramandApproveNorthCountyAgreements,Nov.5,2013.Accessed
4/15/15.
http://Countyounty01.co.santacruz.ca.us/BDS/GovStream2/BDSvData/non_lega
cy/agendas/2013/20131105/PDF/026.pdf
13. OverviewoftheSantaCruzCountyHomelessActionPartnership.Accessed
4/15/15.
www.ctagroup.org/wpcontent/uploads/HAP_Overview_1Page.doc
.
14. CommunityPlanningandDevelopmentHomelessAssistanceGrants2013
SummaryStatementandInitiatives:AccessedApril15,2015.
http://portal.hud.gov/hudportal/documents/huddoc?id=HomelessAssistanceGrant
s.pdf
15. Burt,Martha,R,etal.MedicaidAndPermanentSupportiveHousingFor
ChronicallyHomelessIndividuals:LiteratureSynthesisandEnvironmentalScan."
PreparedforOfficeofDisability,Aging,andLongTermCarePolicy,Officeofthe
AssistantSecretaryforPlanningandEvaluation,andUSDepartmentofHealth
andHumanServices,January6,2011.Accessed4/15/15.
https://www.google.com/url?sa=t&rct=j&q=&esrc=s&source=web&cd=1&cad=rja
&uact=8&ved=0CB4QFjAA&url=http%3A%2F%2Faspe.hhs.gov%2Fdaltcp%2Fre
ports%2F2011%2FChrHomlr.pdf&ei=MpbuVNXnCoznoAS0y4KgCA&usg=AFQjC
NEtF7UerQ4EQLSSNvb1q3N3E6YWaQ

16. ServicesinSupportiveHousingAnnualReport,2010.ThePowerofCommunity:
BuildingConnections,LivingRecovery."SubstanceAbuseandMentalHealth
ServicesAdministration,USDepartmentofHealthandHumanServices.
Accessed4/15/15.
www.samhsa.gov/shin
.
17. DonLane.PublicspeechonCityofSantaCruzseffortstoendhomelessness.
March21,2015,10AM,PoliceCommunityRoom,155CenterStreet,SantaCruz,
CA.
18. Vulnerability(VI)andServicePrioritizationDecisionAssistanceTool(SPDAT):
Accessed4/15/15.
http://www.google.com/url?sa=t&rct=j&q=&esrc=s&source=web&cd=1&ved=0CC
MQFjAA&url=http%3A%2F%2Fwww.kyhousing.org%2FSpecializedHousing%2F
Documents%2FVISPDAT%2520Final%2520PDF%2520Version%2520%2520D
ecember%25202013.pdf&ei=8dviVMuaM4ymyATMnIDYDw&usg=AFQjCNGLPr_
r1mxfpRRlVllqJ0LUnfq0nA&sig2=4nxsbNa63l3TuBiAhJieA&bvm=bv.85970519,
d.aWw
19. SantaCruzCountyHomelessActionPartnership,MeetingAgenda,Wednesday,
Nov.19,2014.
20. VeteranHomelessness:VAandHUDAreWorkingtoImproveDataon
SupportiveHousingProgram.USGovernmentAccountabilityOfficeReporttothe
CommitteeonVeteransAffairs,HouseofRepresentatives,June2012.
Accessed4/15/15.
www.gao.gov/assets/600/591906.pdf
21. ApproachesforEndingChronicHomelessnessinCaliforniathrougha
CoordinatedSupportiveHousingProgram,"CorporationforSupportiveHousing,
Jan.2011.Accessed4/15/15.
http://www.csh.org/wpcontent/uploads/2011/12/Report_CAPSHWhitePaper.pdf
22. HomelessServicesCenterwebsite:Accessed4/15/15.
http://www.scshelter.org/index.php?page=8=aboutus
http://scshelter.org/index.php?page=8aboutus
AccessedJune4,2015.
23. SantaCruzCountyCivilGrandJuryFinalReport19981999,p4850.Accessed
4/15/15.
www.co.santacruz.ca.us/grandjury/gjr1999.htm
.
24. EncompassCommunityServiceswebsite:Accessed4/15/15.
http://www.encompasscs.org/communitysupportservices/riverstreetemergency
shelter
25. SmartSolutionstoHomelessnessinSantaCruzCountywebsite:Accessed
5/19/15.
http://smartsolutionstohomelessness.org/
26. ApproachesforEndingChronicHomelessnessinCaliforniathrougha
CoordinatedSupportiveHousingProgram,"CorporationforSupportiveHousing,
Jan.2011.Accessed4/15/15.
http://www.csh.org/wpcontent/uploads/2011/12/Report_CAPSHWhitePaper.pdf

SiteVisits
HomelessServicesCenter
EncompassCommunityServices
RebeleFamilyShelter
ProjectHomelessConnectinWatsonville
WebSites
www.hud.gov
www.usich.gov
www.scshelter.org
www.emcompasscs.org
www.smartsolutionstohomelessness.org
www.unitedwaysc.org
www.chcf.org
http://aspe.hhs.gov/daltcp/reports/handbook.htm
www.hhs.gov
www.economicrt.org
www.csh.org
http://www.lampcommunity.org/

AppendixA
HistoryofEmergencySheltersfortheHomelessinSantaCruz
TheestablishmentoftheHomelessServicesCenterin1986,withitssheltersandarrayof
daytimeservices,alongwiththeRiverStreetShelter,weretheresultsofeffortsbyprominent
advocatesforthehomelesspopulation,formerlyknownastheSantaCruzCitizens
CommitteefortheHomeless.Inthe1970s,SantaCruzCountycommissionedareportto
examinetheundesirabletransientelement,"followedinthe1980sbystudiesofthestreet
people."Asaresultofthesecommissionedreports,communitybasedshelter,food,and
[22]
serviceprogramsbegantoaidthehomeless.
CollaborativeeffortsofnumerousfaithbasedandreligiousorganizationsledtotheInterfaith
[17]
SatellitePrograminthe1980sthatlaterdissolved,duetolackofadequatesupport.

In1989theSantaCruzCountyCivilGrandJuryexaminedtheHomelessServicesCenter,
[23]
remarkingthatthisisoneofthemostcosteffectiveprogramsinthestate."
Thereportalso
reviewedanadditionalwintershelterprovidedattheNationalGuardArmory,fromNovember
15toMarch30,providedatacostof$500pernightforrentandcleaningoftheArmory.
Recommendationsfromthereportincludedlocatingapermanentemergencyshelterasan
alternativetotheexpensiveuseoftheNationalGuardArmory.
In1990,theShortTermHousingCoalitionreleasedtheAssessmentofShelterandHousing
NeedsoftheHomelessPopulationofSantaCruzCounty."Thisreportpavedthewayforthe
localjurisdictionstoadoptajointresolutiontitledCoordinatedCommunityEfforttoAssistthe
[4]
Homeless."
DonLane,whoisnowMayoroftheCityofSantaCruz,chairedataskforceon
homelessnessinthelate1990s,andlater,asamemberoftheboardofHSC,ledtheefforts
[22]
[17]
toexpandservicestotheirpresentdayprograms,including:
PaulLeeLoftshelter,housing46adultsyearround
RebeleFamilyShelter,housingupto28familiesforupto6months
PageSmithCommunityHouse,atransitionalhousingprogramfor40singlemaleand
femaleadultsforupto18months
Daytimeessentialservices,providingonsiteservicessuchasmeals,laundry,mail,
showers,andsocialservicereferrals.
EncompassCommunityServices,formerlyknownasSantaCruzCommunityCounseling
Center,wasformedin1973,alsobytheSantaCruzCitizensCommitteefortheHomeless,
andcurrentlyoperatestheRiverStreetShelter,a32bedemergencyshelterforhomeless
adultmenandwomen,ofwhich60%ofthebedsarereservedforcountyMentalHealth
[24]
patients.
Mr.LanelaterfoundedthenonprofitadvocacyorganizationSmartSolutions,withthegoalof
changingthemindsetofcommunitiestocommittoendinghomelessness,ratherthanjust
[25]
keepingthehomelessalive,andmanagingthisproblem.
Thisorganization,aprojectofthe
UnitedWayofSantaCruzCounty,iscurrentlyactivelyengagedwithlocaljurisdictionsand
stakeholdersinadvancingtheCountysmissiontoimprovethewaySantaCruzCounty
[25]
workscollaborativelytoreduceandultimatelyendhomelessness."

AppendixB
AnnualStateCostsofChronicHomelessnessinCalifornia
StateCost

IncurringThisCost

AmountPer
PersonPerYear
ofHomelessness

Prison

Over50%ofhomelesspeoplereportahistoryof
incarceration.Peoplewithhistoriesof
homelessnessandmentalillnessare23%more
likelytofaceincarceration,usuallyfordrug
relatedoffences,sleepingonpublicstreets,
defecatinginpublic,andotherqualityoflife
crimes.Paroleeswhoarehomelessareseven
timesmorelikelytorecidivatethanparoleesin
stablehousing.

$40,000$110,000

MediCal

WhileactualcoststoMediCalaredifficultto
$8,000$16,000
assessbecausehomelessnessisnottrackedin
MediCalclaimsdata,frequentusersof
emergencydepartmentswhoareMedicaid
beneficiaries,manyofwhomarehomeless,incur
MediCalcostsofapproximately$16,000over
oneyear.

FosterCare
Costs

Homelessnessisnotabasisforplacingchildren $6,000
intofostercare,butitisoftenlinkedtofostercare
placement.Infact,almosthalfoffosterchildrens
birthparentshavebeenhomeless.

Shelter

Aboutonethirdofpeoplewhoarehomeless
sleepinashelterbedcreatedbystatebond
funding

$47,000

AnnualCity/CountyCostsofChronicHomelessnessinCalifornia
County/City
Costs

AmountPer
PersonPerYear
ofHomelessness

Jail

Peoplewhoarehomelessareatmuchgreater
likelihoodofexperiencingincarceration.

$3,824

General
Relief

Peoplewhoarehomelesswhodonotreceive
SupplementalSecurityIncomeoftenreceive
paymentsfromcountysgeneralrelief/general
assistanceprogram

$2,086

HealthCare

Homelesspeoplehavemuchhigherincidenceof $17,730$28,392
emergencydepartmentvisitsandinpatient
hospitaladmissionthanpeoplewhoarestably
housed.Countyhospitalsoftenfacethefinancial
burdenofbothhomelessuninsuredand
MediCalbeneficiaries.Thosewhorequire
medicalormentalhealthserviceswhileinjail
incura56%increaseincountycostscompared
toinsuredindividuals.

Paramedics/
Ambulance

Homelesspeoplehavemuchhigherutilizationof $2,086
paramedicandambulanceservicesthanthosein
stablehousing.

Total
Annual
Community
Costs

Source
:[26]

IncurringThisCost

$25,726$36,388
(avg.$31,057)

AppendixC
2014AnnualReportonHomelessDeathsinSantaCruzCountyForthePeriod
December18,2013December17,2014
ReportPreparedbytheHomelessPersonsHealthProject(HPHP),AprogramoftheSanta
CruzCountyHealthServicesAgency
Background
:

Inkeepingwithatraditionestablishedin1999,onceagainthisyearonDecember18th
homelessindividuals,community,familymembers,andhomelessserviceproviderswillcome
togethertohonorthelivesofthosewhodiedwhilehomeless.The2014AnnualReporton
HomelessDeathsandourlocalhomelessmemorialeventrepresentourcommunitys
sixteenthyearofcollectingdataandreportingonhomelessdeathsacrossthecounty.Our
memorialisoneofmanyoccurringacrossthenationtocoincidewiththebeginningofwinter,
atimewhenthedireconsequencesofhomelessnessaremoststarklyevident.
Discussionof2014HomelessDeaths:
Basedonallreporteddeaths,thetotalnumberofpeoplewhodiedwhilehomelessthisyearin
SantaCruzCountyis38.Thetotalnumberofhomelessdeathsreportedin2013was38,and
theaveragenumberofhomelessdeathsperyearovertheprecedingtenyears(20042013)
was33.Theaverageageatdeathfor2014was51.4,whichisslightlyhigherthanthe
averageageofdeathof50forhomelessindividualsinSantaCruzCountyduringtheprevious
tenyearperiod.TheaverageageofdeathforallAmericansis78.7andthismeansthat
peoplewhodiewhilehomelessinourcommunitydie28yearsearlierthanmightotherwisebe
expected.
Eightofthereporteddeaths(21%)areduetoacuteoverdoses,anincreasefromthe16%
reportedin2013.Fivemoreofthedeaths(13%)areattributedtochronicsubstanceuse.In
addition,atleastsixofthedeathsattributedtoothercauseshadsubstanceuseasa
significantcontributingfactor,bringingthetotalofsubstanceuserelatedfatalitiestoatleast
50%.Atotalof6ofthedeaths(16%)wereduetotraumaincludingonehomicide,onesuicide,
andtwohomelesspedestriansstruckbymotorvehicles.Fourhomelesspeople(11%)diedof
cancer.Justoverhalfofthosewhodiedhomelesswereinahospitalornursingfacilityatthe
momentofdeath,whilefourteenofthedeaths(37%)occurredoutofdoorsorinavehicle.
Fourofthepersonswhodiedwereknowntobeveterans.
OnefactiswelldocumentedHomelessnesscauses,complicatesandexacerbatesserious
healthproblemsanditleadstotheprematuredeathsofthousandsofpeopleincommunities
acrossournationeveryyear.Thelongerhomelessnessisendured,thegreatertheimpacton
health.ResearchintheU.S.hasshownthathomelesspersonshaveuptoathreefold
increaseinmortalitywhencomparedtothegeneralpopulation,(Hibbs,1994).Studies
documentanaverageageofdeathamonghomelesspopulationsthatrangesfrom42to52
years,whileaveragelifeexpectancyformostAmericansisalmost80(OConnell,2005).

HowDataOnHomelessDeathsAreCollected
:
Throughouttheyear,apublichealthnurseatHPHPmaintainsalogofdeathsthatoccur
amongpeoplewhoarehomelessinSantaCruzCounty.Thelogincludesinformationon
confirmeddeathsofHPHPclients,aswellasconfirmedreportsofdeathsreceivedfromother
homelessserviceorganizations,medicalproviders,theCoronersoffice,andfriendsorfamily
membersofthosewhohavedied.Thelogalsoincludesdeathcertificatedatacompiledbythe
CountyOfficeofVitalStatistics,anddataobtainedfromtheCountyPublicAdministrators
office.
Thedataavailablefromthisprocessmostlikelyunderrepresentthenumberofhomeless
deathsinthecounty.Housingstatusatthetimeofdeathisneitherwelldocumentednor
alwayseasilydetermined.Also,informationonlikelyfactorsleadingtodeathisimprecise,and
thecausecanbeunknownatthetimeofdeath.Forthesakeofsummarizingtheinformation,
wehaveassignedasingleprimarycontributingfactortoeachdeath,butinmanycases,there
aremultiple,significantfactorsthathavecontributedtoanindividualsdeath.
Forthisreasonthedataprovidedinthissummaryshouldnotbeinterpretedasadefinitive
accountingofdeathsamongthehomelesspopulationinourcounty.Instead,thisreflectsour
besteffortatthistimetocollectandanalyzeaccuratedataonhomelessdeathsinawaythat
ismeaningfultoourcommunity,tohomelessserviceproviders,andtofriendsandfamilyof
thosewhohavedied.
AbouttheMemorial
:
Ourpurposeinpreparinganddistributingthisreportatthistimeofyearisthreefold:first,to
honorandmarkthepassingofallthosewhodiedwhilehomelessinourcommunityduringthe
lastyearsecond,todocumentandincreaseawarenessoftheseriousandnegativeimpactof
homelessnessonthelivesofourfellowcommunitymembersandfinally,toreflectonandto
recommitourselvestotheworkthatislefttobedoneinourcommunitytopreventsomany
unnecessarilyearly,andunjustlyearlydeathseachyear.
Ourmemorialserviceincludesareadingofthenamesofthe38peoplewhowerehomeless
atdeathandarereflectedinourannualreport.Wewillalsoreadthenamesofanadditional
22individualswhowerepreviouslyhomelessanddiedthisyear,butwhowereeitheroutof
county,orhousedatthetimeoftheirdeath.Manyoftheseindividualswerehomelessforlong
periodsoftimebeforeenteringhousing.
Wecontinueourtraditionofcreatinganddisplayinghomelessmemorialflagswiththename,
ageandyearofdeathforeachhomelessorpreviouslyhomelesspersonwhohasdiedsince
December21,1998.Thisyearthatfifteenyeartotalwillexceed600people.Theflagswillbe
ondisplayatthememorialat115CoralStreetinSantaCruz..
NearlyallofthepeoplewhodiedwerepersonallyknowntooneofusattheRiverStreet
Shelter,attheHomelessServicesCenter,atHPHPortooneofourcolleaguesathomeless
serviceorganizationsinWatsonvilleorinotherpartsofthecounty.Wearesometimes
shockedandalwayssaddenedbytheirdeaths.Eachpersonwhodiedwillbemissed.We
hopethatthisinformationwillservetohonorthememoryofeachperson,toguideusinour
ongoingeffortstoimprovethehealthandqualityoflifeforallwhoexperiencehomelessness,
andtorecommitourselvesasacommunitytoendinghomelessnessinSantaCruzCounty.

AppendixD
SantaCruzCountyHomelessActionPartnershipMembers
MembershipList(asofMarch2012)
1. CityofWatsonville
2. CityofSantaCruz
3. CityofScottsValley
4. CityofCapitola
5. CountyofSantaCruzHumanServicesDepartment
6. CountyofSantaCruzHealthServicesAgency/HomelessPersonsHealthProject
7. CountyofSantaCruzPlanningDepartment
8. CountyofSantaCruzOfficeofEducation,HomelessProgram
9. FamiliesinTransition
10. HomelessServicesCenter
11. SalvationArmyofWatsonville
12. PajaroValleyShelterServices
13. HousingAuthorityoftheCountyofSantaCruz
14. SantaCruzAIDSProject
15. UnitedWayofSantaCruzCounty
16. CommunityActionBoardShelterBoardandGEMMA
17. SantaCruzCommunityCounselingCenter
18. FrontStreetHousing,Inc.
19. MountainCommunityResourceCenter
20. CatholicCharities
21. VeteransAdministrationPAHCSMonterey
22. CommunityTechnologyAlliance
23. WalnutAve.WomensCenter
24. CentralCoastIndependentLivingCenter
25. CrossoverNetwork
26. CommunityBridges
27. NewLifeCommunityServices
28. AbovetheLine
29. HomelessGardenProject
30. CommunityFoundationofSantaCruzCounty
31. SeniorLegalServices
32. CaliforniaRuralLegalAssistance
33. Personswhoareexperiencinghomelessnessandformerlyhomelesspersons
34. Interestedindividuals

AppendixE
TotalEmergencyShelterBedsPerJanuary2014CountyHousingInventoryChart
EmergencyShelterOrganizations,Programs&PITBedsTotal:January2014
(includesmotelvouchers)
North South
Year
Total
Organization Program County County Family Family Ind. Round Vet. Seasonal Total
Name
Name
Beds
Beds Beds Units Beds* Beds Beds* Beds Beds
Community
ActionBoard
ofSantaCruz TSPMotel
County
Vouchers

Defensade
Mujeres

DVShelter

12

18

18

FrontStreet,
Inc.

HCH/EH
Paget
Center

12

12

12

12

12

Homeless
Service
Center

PaulLee
LoftShelter

46

46

46

46

Homeless
Service
Center

Rebele
Family
Shelter

96

96

28

96

96

Homeless
Service
Center

Recuperati
veCare
Center

12

12

12

12

Homeless
Service
Center

Winter
Shelter
Program

100

100

JesusMary
and
JesusMary
Joseph
andJoseph
Home
Home
Shelter

12

12

12

NewLife
NLCS
Community Emergency
Services
Shelter

Note:Chartcontinuesonfollowingpage

EmergencyShelterOrganizations,Programs&PITBedsTotal:January2014(Continued)
Grace
Harbor
PajaroValley Mensand
Rescue
Womens
Mission
Shelter

68

68

68

68

PajaroValley
Shelter
Services

Pajaro
Valley
Shelter

36

36

12

36

36

Encompass
Community
Services

River
Street
Shelter

32

32

32

32

Salvation
Army

Cold
Weather
Shelter
Program

28

28

28

SienaHouse

ESfor
Pregnant
Women

12

12

12

Total:

227

132

153

49

169

353

12

128

481

*Ind.BedsIndividualBeds,Vet.BedsVeteransBeds

AppendixF
FinalHAPBudgetFY201415,withIndividualContributionsfromLocal
JurisdictionstowardEWS