Board of Supervisors — 2021-02-23

Homelessness Data and Current State

• Sheltered population decreased by 20% from 2020 to 2021, with the unsheltered population projected at 1,662.
• Recent one-time state and federal funds have resulted in 585 permanent housing placements and 55 new units nearing completion.
• Street outreach success rates increased from 9% to 57% over four years due to consistent engagement and case management.
• The Multidisciplinary Team (MDT) has placed 16 individuals in permanent housing and assisted 43 in receiving benefits.

Fire Safety and Legal Framework

• The Fire Department tracked 448 calls related to homelessness in 2020, with inspections focused on encampments and right-of-ways.
• County Counsel noted that Martin v. Boise and subsequent cases limit criminal sanctions for sleeping outdoors when no alternative shelter is available.
• Jurisdictions may still enforce laws against public urination, littering, and violence, but cannot sanction homelessness itself without qualifying shelter options.
• Enforcement actions are viewed as short-term solutions that may not resolve underlying housing needs or deter homelessness.

Phase Two Community Action Plan

• The plan prioritizes ending homelessness for veterans, youth, and families while increasing housing inventory and shelter diversion.
• Housing gap analysis identifies needs for 563 temporary beds, 1,053 rapid rehousing slots, and 835 permanent supportive housing units.
• Recent successes include housing 52 youth and 46 veterans through 100-Day Challenge initiatives.
• The board directed staff to identify sites for permanent supportive housing and temporary bridge shelters to expedite progress.

Board Direction and Next Steps

• Supervisors debated the balance between voluntary services and enforcement, with some advocating for a "stick" approach if voluntary measures fail.
• The board agreed to pursue a comprehensive strategy including safe parking, bridge shelters, and case management for all unsheltered individuals.
• Staff will present a plan for increasing capacity, including options for temporary housing and models from other jurisdictions.
• The elected officials forum will shift from a quarterly to a monthly schedule to accelerate coordination with partner cities.

Motion and Approval

• The Assistant CEO moved to approve items A through E, reflecting the board's direction on work plan priorities.
• The motion was seconded and passed, authorizing staff to proceed with the identified housing and service strategies.
• Staff will present the plan to partner cities for their adoption and begin identifying collective sites for housing.
• The board emphasized the need for agile responses, such as acquiring motels or hotels, to address immediate housing gaps.

Meeting Start and Roll Call

• The February 23, 2021, special meeting of the Santa Barbara County Board of Supervisors was called to order. The Clerk of the Board called the roll, and all five supervisors (Williams, Hart, Hartman, Lavagnino, and Chair Nelson) were present. The board recited the Pledge of Allegiance.

Announcements

• The Clerk of the Board provided the following announcements:
• Projected Calendar: The board’s projected calendar for March 2021 begins on page 6 of the agenda. This calendar will be published on the last agenda of every month to display projected items for the following month.
• Spanish Interpretation: Board meetings are now interpreted in Spanish. Cox subscribers can enable Spanish Audio Programming (SAP) via language settings. Comcast is updating its system and is expected to broadcast board meetings in Spanish by the end of March 2021.
• Public Participation: Alternative methods for public participation are detailed on page 2 of the agenda. Individuals wishing to provide verbal public comment must register in advance via Zoom. Each person may address the board for up to three minutes, at the chair’s discretion.

County Executive Officer’s Report

• The Assistant CEO reported that there was no County CEO’s report for this meeting.

General Public Comment

• One member of the public, Katie Mickey, spoke regarding wireless telecom facilities. She stated that Safe Technology for Santa Barbara County has requested protections from issues surrounding wireless telecom facilities, citing concerns about fire safety, property values, aesthetics, and biological harms. She requested the restoration of pre-December 2019 telecom code protections, which prohibited small cell antennas in residential and mixed zones and required proof of a gap in service. She also requested a meeting with county staff and a telecom attorney to discuss local government authority under the Telecommunications Act.
• Another individual, Gina Sawaya, requested to speak on the homelessness issue but was directed to wait for the relevant agenda item.

Departmental Item No. 1: Hearing to Consider Recommendations Regarding Phase Two of the Community Action Plan to Address Homelessness

Presentation: Current State of Homelessness (Kimberly Albers, Community Services)

• Shelter Capacity: The sheltered population decreased by 20% from 2020 to 2021. In 2020, 674 persons were in year-round shelters; in 2021, 407 persons were in year-round shelters and 126 in temporary emergency shelters (Roomkey, warming centers, Isla Vista pop-up). The unsheltered population is projected at 1,662 based on data modeling.
• Funding: County-wide dedicated funds for housing and services (excluding capital development) total approximately $19.8 million. Shelter and interim housing represent the largest investments. Less than 5% of allocated funding is discretionary.
• One-Time Investments: Recent one-time state and federal funds (Homeless Emergency Aid Program, Homeless Housing Assistance and Prevention Program, Coronavirus Relief Funds) have resulted in 585 permanent housing placements. 55 new permanent housing units have been completed or are nearing completion.
• Outreach: Successful exits from street outreach (temporary or permanent housing placements) increased from 9% to 57% over the last four years. This is attributed to consistent engagement, case management, and access to sanitation services.
• Encampments: Responding to encampments is challenging. In Isla Vista, 20 pallet structures were deployed to provide temporary shelter, assisted by Good Samaritan Shelter.

Board Questions and Discussion (Albers Presentation)

• Supervisor Williams asked why bed capacity is decreasing despite new facilities. Albers explained that year-round shelters reduced capacity due to COVID-19 outbreaks and physical distancing requirements, and temporary shelters have not fully offset the loss.
• Supervisor Hart asked for details on the demographics and locations of the 585 permanent housing placements. Albers stated these were primarily rapid rehousing interventions, often paired with housing choice vouchers, serving a diverse population including medically fragile seniors and families. She noted that the Homeless Emergency Aid Program (HEAP) is a key driver of these placements but will end on June 30, 2021.
• Supervisor Lavagnino asked about the 43% of individuals not successfully exited from encampments. Albers explained that most remain enrolled in outreach programs, requiring an average of 14 visits to build trust and achieve placement. She noted that residents often resist offers due to past system failures.
• Supervisor Williams asked if the Isla Vista success was due to a "stick" (enforcement) or "carrot" (services). Albers stated that consistent engagement and services were the primary factors, not enforcement. She noted that replicating the Isla Vista model elsewhere requires community support, specific site availability, and potential zoning/building code waivers, which were available during the public health emergency.
• Chair Nelson asked about the status of the 768 children served. Albers clarified that these children are primarily in the shelter system or working with the Department of Social Services, not unsheltered on the streets. She confirmed that while children have been encountered in encampments, it is not common.

Presentation: Fire Impacts and Response (Chief Hartwig, County Fire Department)

• Statistics: In 2020, the fire department tracked 448 calls related to homelessness or transient individuals, the majority being emergency medical calls. There were more than three fire-related calls per month, typically resulting from warming or cooking.
• Inspections: The department inspected 21 encampments in 2020 at the request of jurisdictions or due to community complaints. They also conduct regular inspections of the pallet house project and safe sleeping area in Isla Vista.
• County Fire Chiefs Group: A group of fire chiefs and marshals formed subgroups to address three issues: encampment fire/life safety, dispersed camping in forests, and trailhead parking/access issues. These subgroups have met twice and are preparing recommendations for the county fire chiefs.
• Caltrans/Union Pacific: Encampments are frequently located on Caltrans and Union Pacific right-of-ways. Cleanup efforts are occasional and often requested by the public. While cleanups reduce fire hazards by removing accumulated property, there is no regular patrolling of these areas.

Board Questions and Discussion (Fire Presentation)

• Supervisor Lavagnino asked about the county’s relationship with Caltrans regarding encampments on their property. Chief Hartwig noted that Caltrans cleanups are occasional and often driven by public pressure, but there is no regular patrolling. He stated that cleanups are beneficial for reducing fire hazards.
• Supervisor Lavagnino indicated he would seek clarification on legal responsibilities and options regarding Caltrans property later in the meeting.

Multidisciplinary Team (MDT) Overview

• Presentation: Staff presented an overview of the MDT, funded by HEAP grants, designed to serve the chronically homeless population. The team includes caseworkers, practitioners, and psychiatry support in North and South County.
• Outcomes Reported:
• Outreach provided to over 90 unsheltered individuals.
• 29 individuals placed in shelter environments.
• 16 individuals placed in permanent housing (8 in Depot Street units in Santa Maria; 4 in B Street Studios in Lompoc).
• 43 individuals assisted in receiving benefits.
• One specific case study cited 400 documented instances of contact to achieve housing stability for a small group of clients.
• Discussion:
• The Public Defender’s Office emphasized the necessity of a holistic, trust-based approach for individuals with complex needs (mental illness, comorbidities, criminal history), noting that "one size fits all" models are ineffective.
• Supervisor Hartman asked about cross-jurisdictional data sharing and best practices. Staff acknowledged that while communication exists, data sharing is limited by silos and HIPAA regulations. Staff noted that consistent outreach by the same workers is critical for building trust, often requiring more than 25 contacts.
• Supervisor Lavagnino commented on the resource intensity of the model, noting that while effective for individuals, the scale of the homeless population (approx. 1,600) makes it difficult to apply this intensive model universally without significant resources.

Legal Framework and Enforcement

• Presentation: County Counsel presented an analysis of the legal landscape regarding homelessness enforcement, specifically referencing Martin v. City of Boise (9th Circuit, 2019), Grants Pass (District Court), and Los Angeles Alliance (District Court).
• Key Legal Points:
• Martin v. Boise is based on 2009 facts and primarily addresses criminal sanctions for sleeping outdoors when no alternative shelter is available.
• More recent cases (Grants Pass, Los Angeles Alliance) broaden the scope to include civil violations and define what constitutes a valid "alternative shelter" (e.g., must include beds, social distancing, and adequate staff during the pandemic).
• Jurisdictions may still enforce laws against public urination, defecation, littering, illicit substances, harassment, or violence, but cannot sanction homelessness itself if no qualifying alternative shelter is available.
• Discussion:
• County Counsel noted that enforcement actions (arrests/citations) are often short-term solutions that may not deter homelessness and can lead to jail overcrowding without resolving the underlying housing need.
• Supervisor Lavagnino expressed concern that law enforcement feels constrained by these legal standards, leading to an increase in encampments.

Phase Two Community Action Plan to Address Homelessness

• Presentation: Staff presented the Phase Two Action Plan, which builds on the Phase One plan adopted in June 2019.
• Process: The plan was developed with input from over 400 community members and stakeholders, reviewed by the Continuum of Care (COC) Board, and approved by the COC on January 7, 2021.
• Guiding Principles: Includes cross-sector collaboration and incorporating persons with lived experience.
• System-Level Goals:
• 1. Prioritize ending homelessness for specific populations (veterans, youth, families). 2. Increase housing inventory (temporary beds and permanent units). 3. Create a culture of shelter diversion and prevention. 4. Increase the impact of funding through performance-based metrics. 5. Build provider capacity for specific populations.
• Housing Gaps Analysis:
• 563 temporary beds needed.
• 1,053 rapid rehousing slots needed.
• 835 units of permanent supportive housing needed.
• 531 long-term subsidies needed.
• Recent Successes:
• Youth 100-Day Challenge: 52 youth permanently housed (goal was 50).
• Veterans 100-Day Challenge: 46 veterans permanently housed (goal was 75; additional households in pipeline).
• Implementation Work Plan: Includes convening elected leaders, improving HMIS data coverage, and addressing barriers to mainstream services.

Public Comment

• John Polanski (Housing Authority of the County of Santa Barbara): Highlighted the housing of 95 individuals in Depot Street and Homekey Studios developments. Emphasized the need for both housing and support services for retention. Noted 13 developments in process across all five supervisorial districts.
• Rob Frederick (Housing Authority of the City of Santa Barbara / COC Chair): Commended improved coordination between agencies. Stated that the primary needs are increased affordable housing (rental subsidies/new units) and expanded intensive wraparound services. Called for ongoing local funding sources.
• Christine Schwartz (New Beginnings): Supported the Phase Two plan. Emphasized the need for flexible, ongoing funding to support emergency rental assistance, landlord incentives, and housing retention services. Noted that CARES/state funding is restrictive and short-lived.
• Edwin Weaver (Fighting Back Santa Maria Valley): Reported on the Young Adult Services Homeless Outreach Program funded by HEAP. Cited success in housing 35 transitional-age youth (18–24) and helping one youth graduate high school. Encouraged continued support for youth-directed services to prevent chronic homelessness.
• Lynn Gibbs (NAMI): Advocated for increased utilization of Assisted Outpatient Treatment (Laura’s Law), a court-ordered outpatient program for individuals with severe mental illness. Noted that as of July, all California counties are required to have such a program unless they vote otherwise.
• Chuck Flax (Independent Consultant): Congratulated HCD on progress in coordinated outreach and data sharing. Framed homelessness as part of a larger regional housing shortage (3 million units short in California). Encouraged the Board to pursue new local revenues, bond measures, and taxes for housing construction and supportive services.
• Sharon Byrne (Community Member): Raised concerns about COC management and fund allocation. Suggested repurposing vacant commercial spaces and motels for housing. Called for better coordination of outreach across jurisdictions and engagement of the wider community in funding and solutions.
• Gina Sawaya: Spoke regarding the need for bold and creative approaches to homelessness, noting that many unsheltered individuals are local residents. She expressed concern about the expiration of temporary housing options (hotels, tiny homes, People’s Park) and advocated for sanctioned permanent outdoor sleeping areas, democratic control over shelter conditions, and universal access to internet, electricity, and water.
• Beth Sweetwater: Referenced historical policy contexts and suggested examining successful models from other jurisdictions, such as small pop-up neighborhoods and co-ops, to create a more sustainable foundation for housing solutions.
• Ash Valenti: Spoke as a former homeless individual and member of EcoVista. He advocated for multiple free, safe campsite options with necessary facilities and supported the expansion of housing co-ops. He offered the assistance of his group for community feedback on solutions.
• Andrea Hine: Expressed gratitude to the Board of Supervisors for their efforts in addressing homelessness.

Board Discussion

• Clarification on Caltrans: Supervisor Chapchin clarified that county staff and the City of Goleta have been working with Caltrans on cleanups along Highway 101 for fire safety and other reasons, indicating active involvement in the issue.
• Phase Two Action Plan: Supervisor Hartman expressed support for the Phase Two Action Plan, noting its focus on specific subpopulations (veterans, youth, families). She described experiences with the Santa Ynez River and Isla Vista encampments, emphasizing the importance of creating connections, routine, and stability. She highlighted the success of the safe parking program and the need for safe camping and pallet houses to provide structure and access to services.
• Housing and Funding: The Assistant CEO (Supervisor Hart) thanked Supervisor Hartman and discussed the challenges of securing permanent housing, citing the loss of redevelopment agency funding as a significant policy failure. He emphasized the need for agile responses, such as acquiring motels or hotels, and called for partnerships with the Chamber of Commerce and property owners. He supported focusing on manageable subsets of the population (veterans, youth) to achieve measurable progress.
• Progress and Resources: Supervisor Lavagnino acknowledged the progress made and the efforts of staff and partners. He expressed frustration with the lack of visible progress for the remaining unsheltered population and emphasized the need for sustained effort and resources. He opposed the idea of allowing camping anywhere within city limits, citing public health and community rights, but supported a comprehensive approach ("check the box of all of the above").
• Housing Construction and Safe Parking: Supervisor Williams argued that building housing is the primary long-term solution. He criticized the lack of sites for temporary housing (e.g., safari tents) and urged the community to support safe parking programs to prevent individuals from moving from vehicles to the street. He noted that current housing costs are prohibitive and that economic dislocation from COVID-19 exacerbates the issue.
• Encampments and Case Management: Supervisor Hart (referred to as Supervisor Hartman in some transcripts, but contextually distinct in this section as the speaker advocating for stricter measures) expressed a strong desire to end unsheltered encampments due to safety, health, and abuse concerns. He advocated for a combination of safe parking, bridge shelters, and safe camping, and emphasized the need for case management for every homeless individual. He suggested that if voluntary measures fail, the county should consider enforcement options, citing examples from other jurisdictions.
• Debate on Coercion vs. Voluntary Measures:
• The Assistant CEO (Supervisor Hart) disagreed with a coercive strategy, stating that science does not support forcing individuals into progress. He advocated for creating attractive options (e.g., hotel rooms via RoomKey) and emphasized that the system backs up without permanent housing. He suggested reconceptualizing "navigation centers" as widespread service points rather than a single location.
• Supervisor Hart (advocating for stricter measures) respectfully disagreed, arguing that some individuals in despair require a "stick" or accountability to change their behavior. He clarified that he was not advocating for immediate arrest but for creating capacity and then using enforcement as a last resort.
• Supervisor Hartman (Joan Hartmann) clarified that the goal is to create routine and order, not necessarily force, and that fire safety concerns necessitate moving people from unmanaged encampments to managed situations. She emphasized the need for stabilization (e.g., 90 days) to address addiction.
• Next Steps:
• Supervisor Hart (advocating for stricter measures) requested that staff return with a plan for increasing capacity for the unsheltered population, including options for temporary bridge shelters and pallet homes, and to present models from other jurisdictions.
• The Assistant CEO (Supervisor Hart) agreed, suggesting that board members identify potential sites in their districts to expedite the process.
• Supervisor Hartman noted bottlenecks in finding providers and land with utilities, and suggested engaging communities and business districts.
• Supervisor Hart (advocating for stricter measures) suggested that temporary nature of these facilities might reduce community resistance.
• Supervisor Lavagnino suggested consulting with city counterparts to identify potential sites and noted that community resistance might decrease as the need for capacity becomes more apparent.

Housing Work Plan and Site Identification

• The Assistant CEO outlined the next steps following the potential adoption of the plan, which include presenting the plan to partner cities for their adoption. Key priorities identified in the plan include identifying collective sites for housing and focusing on no- to low-barrier and temporary sheltering options. The Assistant CEO noted that staff recommended changing the elected officials forum from a quarterly to a monthly meeting schedule to accelerate progress.
• The Assistant CEO stated that two sites in the first district have been identified for permanent supportive housing, one of which is adjacent to a proposed probation building. The Assistant CEO indicated that actions could be taken within the next few months to bid on these projects and determine financing mixes. The Assistant CEO also expressed support for pursuing temporary housing options while noting the need for careful strategy due to past challenges. The Assistant CEO acknowledged the value of the elected leaders forum for integrating local government partners and noted that increased visibility of encampments may make constituents more open to innovative solutions for migrating individuals to stable housing.

Motion and Vote

• The Assistant CEO moved to approve items A through E, stating that the board had provided appropriate direction for work plan priorities and that staff had captured these directions. The motion was seconded.
• The motion to approve items A through E passed.

Adjournment

• The Chair thanked Supervisor Williams for attending and staff for meeting on an off day. The meeting was adjourned, with the next regular meeting scheduled for March 2nd.