Hidden in Plain Sight: Finding Safe Parking for Vehicle

Seattle University School of Law Seattle University School of Law

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5-4-2018

Hidden in Plain Sight: Finding Safe Parking for Vehicle Residents Hidden in Plain Sight: Finding Safe Parking for Vehicle Residents

Tyrone Ray Ivey

Jodleyn Gilleland

Sara Rankin Seattle University School of Law

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Recommended Citation Recommended Citation Ivey, Tyrone Ray; Gilleland, Jodleyn; and Rankin, Sara, "Hidden in Plain Sight: Finding Safe Parking for Vehicle Residents" (2018). Homeless Rights Advocacy Project. 14. https://digitalcommons.law.seattleu.edu/hrap/14

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Hidden in Plain Sight

Finding Safe Parking for Vehicle Residents

AuthorsT.RayIvey&JodilynL.Gilleland

EditorSaraK.Rankin


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ACKNOWLEDGMENTS TheHomelessRightsAdvocacyPracticumisasectionoftheHomelessRightsAdvocacyProject(HRAP)attheSeattleUniversitySchoolofLaw’sKorematsuCenter.RayIvey,lawstudentatSeattleUniversityandmemberofHRAP,andJodilynGilleland,recentSeattleUniversitySchoolofLawgraduateandformerHRAPcohortmember,authoredthispolicybriefunderthesupervisionofProfessorSaraRankin.Theauthorsaredeeplygratefultotheseindividualsfortheirtimeandcontributionstothisbrief:

• FellowHRAPmembers,includingBrittanyChiechi,TranDinh,ChrisKranda,KatherineMeans,EvanieParr,ColleenRowe,andJocelynTillisch

• JenniferAdams,BridgeCareCenter• JeanDarsie,ScofflawMitigationTeam• LisaGustaveson,CityofSeattle• MadeleineHarnois,Attorney• RiannaHidalgo,Journalist• CatherineHinrichsen,SeattleUniversity• ReverendBillKirlin-Hackett,InterfaithTaskforceonHomelessness• KarinaO'Malley,LakeWashingtonUnitedMethodistChurch• GrahamPruss,UniversityofWashingtonDepartmentofAnthropologyandWeCount• MarkPutnam,AllHomeKingCounty• JessieRawlins,CityofSeattle• CassieRoach,NewBeginningsCounselingCenter• Dr.TeresaSmith,DreamsforChange• JessicaSo,WashingtonAttorneyGeneral’sOffice


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TABLE OF CONTENTS Acknowledgments...............................................................................................2

ExecutiveSummary.............................................................................................4

Introduction.........................................................................................................7

CaseStudies........................................................................................................9

A.NewBeginningsCounselingCenter’sSafeParkingProgram,SantaBarbara,California........................................................................................................101.OperationalApproaches..........................................................................112.CommunityEngagementandPublicRelationsStrategies.......................173.LegalConsiderations...............................................................................19

B.DreamsforChange’sSafeParkingProgram,SanDiego,California............211.OperationalApproaches..........................................................................232.CommunityEngagementandPublicRelationsStrategies.......................283.LegalConsiderations...............................................................................29

C.LakeWashingtonUnitedMethodistChurch’sSafeParkingProgram,Kirkland,Washington.....................................................................................301.OperationalApproaches..........................................................................312.CommunityEngagementandPublicRelationsStrategies.......................343.LegalConsiderations...............................................................................36

ConclusionsandRecommendations..................................................................37

A.FundingSources.........................................................................................37

B.Relationships..............................................................................................39

C.ReputationalCapital...................................................................................40

D.FinalConclusions.......................................................................................41


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EXECUTIVE SUMMARY

ThepopulationofunhousedindividualscontinuestoincreaseinKingCounty;however,availableindoorovernightshelterhasnotkeptpace.Thisshortagecontributedtoa76%increaseinthenumberofunhousedindividualscountedas“unsheltered”duringtheannualKingCountyPoint-in-Timecountsurveyssince2014.1Asignificantportionofpeoplecountedas“unsheltered,”though,cansecuretemporaryshelterinavehicle.Accordingtothemostrecentcount,vehicleresidentsmakeup42%oftheunshelteredpopulationinKingCounty.2

Theroadtohomelessnessisoftencomplexandindirect.Often,somecombinationof

uncontrollableexternalforces,unpredictableevents,unfortunateconsequences,andrandomchanceovercomesanindividual’sabilitytostaveofftheeventuallossofasafeandstablehousingoption.Aperson’svehiclecanrepresentapersonalrefuge:thelastremaininglinktoasenseofprivacy,stability,andpersonalautonomy.Adequatesheltersarealsocommonlyinaccessibletovehicleresidentsbecausethereisnoplacetoleavethevehicle.3Formany,theirvehicleistheirhome.4

Butvehicleresidentsareroutinelypunishedforthesecircumstances.Manylaws

criminalizenecessary,life-sustainingactivities,whichroutinelyaffectallunhousedpeople.Butvehicleresidents,specifically,aredisproportionatelyimpactedfromacomplexarrayoflawsregardingvehicles.Manyparkingrestrictionseffectivelybanishvehicleresidentsfrommajorpartsofthecity.5Often,vehicleresidentsareunabletopayforcitations,whichthenevolveintocriminalinfractions.6Otherlawscommonlyallowfortheimpoundmentofavehicularhome,forcingvehicleresidentstoendureevengreatertraumaonthestreet.

Theselawsdonotresultindeterrenceormeaningfulrevenue,buttheydoharmto

alreadyvulnerablepeople,makingthemmoreresistanttorecoveringfrompovertyandhomelessness.7Thisresultisnotonlyinhumane,butamountstoacostlyrotatingdoorthat

1CountUsIn,Reports,ALLHOMEKINGCOUNTY,http://allhomekc.org/king-county-point-in-time-pit-count/#reports(lastvisitedDec.1,2017).2CountUsIn,Seattle/KingCountyPoint-In-TimeCountofPersonsExperiencingHomelessness2017,ALLHOMEKING

COUNTY(2017),http://allhomekc.org/wp-content/uploads/2016/11/2017-King-PIT-Count-Comprehensive-Report-FINAL-DRAFT-5.31.17.pdf[hereinafter2017OneNightCountReport].3SUZANNESKINNERANDSARARANKIN,SHUTOUT:HOWBARRIERSOFTENPREVENTMEANINGFULACCESSTOEMERGENCY

SHELTER(May9,2016),https://papers.ssrn.com/sol3/papers.cfm?abstract_id=2776421.4JessicaSoet.al.,SeattleUniv.Sch.ofLaw,HomelessRightsAdvocacyProject,LIVINGATTHEINTERSECTION3(May9,2016),https://ssrn.com/abstract=2776423[hereinafter“LivingattheIntersection”].5Id.6JustinOlsonet.al.,SeattleUniv.Sch.ofLaw,HomelessRightsAdvocacyProject,WASHINGTON'SWARONTHE

VISIBLYPOOR:ASURVEYOFCRIMINALIZINGORDINANCES&THEIRENFORCEMENT(May6,2015),https://ssrn.com/abstract=2602318orhttp://dx.doi.org/10.2139/ssrn.2602318[hereinafter"Washington’sWar"];seealsoLivingattheIntersection,supranote4.7Id.;Washington’sWar,supranote6.


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generatessignificantfiscaldrain.Accordingly,otherreportshavealreadyshownwhytheselawscanandshouldberevisedtomitigateharmtovulnerablevehicleresidents.8

SafeParkingProgramscanbepartofaninterimsolutionthatmitigatesharmto

vulnerablevehicleresidents.SafeParkingProgramsutilizeexistingpublicorprivately-ownedparkinginfrastructuretoprovidevehicleresidentswithasafe,reliable,andlegalplacetopark.Thisbriefisaresourceforanyoneinterestedinresearching,implementing,oradvocatingforSafeParkingProgramstomitigateharmtovehicleresidentsandtoofferthesevulnerableneighborssupportthatmightliftthemoutofpovertyandintostable,permanenthousing.ItsurveysresourcesandhighlightsthreespecificcasestudiesofcurrentlysuccessfulSafeParkingPrograms:NewBeginningsCounselingCenter,inSantaBarbara,California;DreamsforChange,inSanDiego,California;andLakeWashingtonUnitedMethodistChurch,inKirkland,Washington.

Finally,thisbriefsynthesizeskeyconsiderationsforanyoneseekingtoadvocateforor

implementaSafeParkingProgram.Theseareasinclude:OperationalApproaches.OperationalapproachestoSafeParkingProgramshelp

determinethegoalsandprimaryfunctionsoftheprogram.

• SuccessfulSafeParkingProgramsstartbyclearlyidentifyingtheirgoalsandthetargetpopulationtheywanttohelp.

• Twooperationalmodelsaretypical:acentralizedhostingmodeloraprivatizedmodel.

o Inacentralizedhostingmodel,theprimaryfunctionsoftheprogramareadministeredthroughoneorganization,suchasanon-profit.Thismodelallowsforprogrammaticefficiency,becausetheSafeParkingProgramcanutilizeexistingadministrativeresources.Dependingonthestatusoftheadministeringorganization,thismodelcanallowthepossibilityofgovernmentfundingandwidernetworksforoutreach.

o Inaprivatizedmodel,SafeParkingprogramsareaffordedgreateroperationalfreedomsbecausetheyarelesslikelytoberestrictedduetofundingcriteriaorgovernmentaloversight.Withaprivatemodel,SafeParkingProgramsareallowedgreaterdiscretioninhowtheychoosetooperatetheirprograming.Asaresult,communityengagementmaydiffer.

Sourcesoffunding.SafeParkingprogramsaretypicallyfundedfromthreemajor

sources:government,privatedonors,andindividualdonors.Eachsourcecomeswithprosandcons.

8LivingattheIntersection,supranote4.


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• SafeParkingProgramsfaceissuesaroundreliabilityoffundingresources,theflexibilityinwhichthefundingcanbeused,andtheoverallautonomythateachSafeParkingProgramwillreceiveiftheyacceptthefunding.Forexample,governmentfundingisoftenareliableandstablesourceoffundingbecausetherecipienttypicallyknowshowmuchmoneytheywillbereceiving,andwhentheywillbereceivingit.However,governmentgrantscanrestricthowrecipientscanspendthemoney.Fundingreceivedfromlargeprivatedonorsandindividualdonorsmayallowmoreflexibilityorfewerspendingrestrictions.However,usingprivatedonorsmayresultinamorelimitedorunreliablefundingstream.Positiverelationshipswithlocalgovernmentandlocallawenforcement.Safe

ParkingProgramsincreasetheirlikelihoodofsuccessiftheydevelopstrongrelationshipswithlocalgovernmentandlawenforcement.SuchrelationshipscanpositivelyaffectaSafeParkingProgram’soperationalplans,fundingapplications,lotprocurement,mediaexposure,andcommunityengagementandinteraction.

CommunityEngagement.SafeParkingProgramsalsobenefitfrominvestingin

positivecommunityrelationships.Programsbenefitfromdevelopingpositivereputationalcapital.CreatingthoughtfulandintentionalrelationshipswithinthecommunitycreatestrustbetweencommunitymembersandvehicleresidentsthatutilizetheSafeParkingProgram.

Theonlyrealsolutiontoaddressvehicleresidencyisanexittohousing.9Butinthe

crucialinterim,SafeParkingProgramscanmitigateharmandprovidecriticalstabilityforvehicleresidentswho,fortoolong,havebeenhiddeninplainsight.10

9Manyadvocatesandpolicymakersagreethatthatultimategoalofasafeparkingprogramistosecurepermanenthousing;however,thisgoalmaynotresonatewithsomevehicleresidents,whoalreadyseetheirvehicleastheirhome.Accordingly,someadvocates,suchasGrahamPruss,maysee“exittohousing”asa“euphemismforpropertyseizure.”E-mailfromGrahamPruss,ExecutiveDirector&Co-Founder,WeCount,toauthors(April12,2018)(onfilewithauthors).10ThankyoutoAshwinWarrior,whoseblogentry,EveryoneCounts:IncludingVehicleResidentsHidinginPlainSight,providedtheinspirationforthetitleofthisbrief.Ashwin’sblogisavailableatFiresteel,January29,2013,http://firesteelwa.org/2013/01/everyone-counts-including-vehicle-residents-hiding-in-plain-sight/


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Introduction In2015,theresultsoftheKingCounty’sPoint-in-Timecountofpeopleexperiencing

homelessnessreportedthatthetotalofunhousedindividualsincreased8%overtheprioryearandexceeded10,000individualsforthefirsttimeinover30years.11Thatsameyear,theKingCountyExecutiveandtheMayorofSeattlebothissued“statesofemergency”toraiseawarenessabouttheunderlyingissuescontributingtothedramaticriseintheunhousedpopulationandtoaccessemergencyfundingtoaddressthoseissues.12Otherlargecommunitiesacrossthewestwerereportedastakingsimilaractions—includingthecitiesofLosAngelesandPortland,andtheentirestateofHawaii.13Sincethen,thenumbershavecontinuedtoincreaseatasimilarrate,withthemostrecentKingCountyPoint-in-Timecountresultinginastaggering11,688unhousedindividualsinearly2017.14

Butthesenumbersonlytellpartofthestory.Oneprominentsegmentoftheunhousedor“unsheltered”populationisagroupsometimesdescribedas“hidinginplainsight”:vehicleresidents.15Whiletechnicallycountedas“unsheltered,”vehicleresidentsutilizetheirvehicleasaplaceofpersonalrefugeandshelter.Indeed,vehicleresidentsmakeupasignificantportionofKingCounty’stotalunshelteredpopulation16—42%in2017.17112015Results,SEATTLE/KINGCOUNTYCOALITIONONHOMELESSNESS,http://www.homelessinfo.org/what_we_do/one_night_count/2015_results.php(lastvisitedNov.26,2017).12DanielBeekmanandJackBroom,Mayor,countyexecdeclare‘stateofemergency’overhomelessness,originallypublishedNovember2,2015at11:23am,https://www.seattletimes.com/seattle-news/politics/mayor-county-exec-declare-state-of-emergency-over-homelessness/(UpdatedJanuary31,2016at10:41am)("[L]ocalleadersMondaydeclaredstatesofemergencyinSeattleandKingCounty.”).13Id.(“LosAngelesandPortlandtookthestepinSeptember….Hawaiifollowedsuitthispastmonth.”).14CountUsIn,HomelessnessinKingCounty:2017OneNightCountResults,ALLHOMEKINGCOUNTY(2017),http://allhomekc.org/wp-content/uploads/2017/05/2017-Count-Us-In-Infographic.pdf.Point-in-timecountssuchastheseareoftencriticizedasunderestimations.See,e.g.,PaulBoden,HomelessHeadCountsHelpNoOne,S.F.GATE(Feb.5,2013,7:26PM),http://www.sfgate.com/opinion/openforum/article/Homeless-head-counts-help-no-one4254191.php("Point-in-timecountsareaminimumnumber,always.Theyundercounthiddenhomelesspopulationsbecausehomelesspersonsaredoublingupwiththehousedorcannotbeidentifiedbysightashomeless.").Thisundercountingcanbeespeciallytrueforvehicleresidents.NancyJoseph,ChampioningSeattle'sInvisibleHomeless,UNIVERSITYOFWASHINGTONCOLLEGEOFARTSANDSCIENCES:PERSPECTIVESNEWSLETTER(Dec.2012),https://artsci.washington.edu/news/2012-12/championing-seattles-invisible-homeless-0(quotingvehicleresidencyresearcherGrahamPrussexplainingthat“[t]okeeptheirlives,property,andhomessafe,[for]manyvehicleresidents....theirsurvivalstrategyincludesinvisibility”).15AshwinWarrior,EveryoneCounts:IncludingVehicleResidentsHidinginPlainSight,Firesteel,January29,2013,http://firesteelwa.org/2013/01/everyone-counts-including-vehicle-residents-hiding-in-plain-sight/.16HeidiGroover,"MyVanWasJustGone."HomelessAdvocatesAskCitytoStopTicketing,TowingVehiclesPeopleLiveIn,THESTRANGER(Oct3,2017at4:27pm),http://www.thestranger.com/slog/2017/10/03/25450050/my-van-was-just-gone-homeless-advocates-ask-city-to-stop-ticketing-towing-vehicles-people-live-in.172017OneNightCountReport,supranote2.

Safe Parking Programs use public or private parking lots to provide vehicle residents

with a safe, reliable, and legal place to park.


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SafeParkingProgramshelpaddresstheuniqueneedsofvehicleresidents.Atthemost

fundamentallevel,aSafeParkingProgram(SPP)usesexistingpublicorprivately-ownedparkinginfrastructuretoprovidevehicleresidentswithasafe,reliable,andlegalplacetopark.Thisneedisoftenurgentandpersistentbecause“banishingvehicleresidencyisoneofthefastest-growingformsofcriminalization.”19Forexample,overthepasttenyears,citieswithlawsthateffectivelycriminalizevehicleresidencyincreasedastaggering143%.20Theselaws

includemeteredstreetparkingzones,21permit-onlyparkingzones,22timerestrictions,23restrictionsonvehicleoperability,24restrictionsregardinglicensingandregistration,25andevenprohibitionsdirectedspecificallyatvehiclehabitation.26

Whilecitiestypicallyjustifythesezoningrestrictionsasnecessaryforpublicorderorhealthandsafetyconcerns,27sometimestheyarearesponseto

pressurefromcommunitymembers,whofearthatallowingoccupiedvehicleparkingwillinviteproblemsstereotypicallyassociatedwithvehicleresidentsintheircommunities.28Thescopeandimpactoflawsthatcriminalizepeopleforlivingintheirvehicles—evenwhentheyhavenootherreasonablealternative—iswelldocumented.29

Scofflawordinancesexacerbatetheeffectsofcriminalization.Scofflawordinances

imposepenaltiesandfinancialburdensonalreadypoorpopulations,allowingfortheextra-judicialimpoundmentofvehiclesiftheirownerscannotpaythefines.30Theselaws18Groover,supranote16.19LivingattheIntersection,supranote4.20NATIONALLAWCENTERONHOMELESSNESSANDPOVERTY,HOUSINGNOTHANDCUFFS:ENDINGTHECRIMINALIZATIONOF

HOMELESSNESSINU.S.CITIES(2018),https://www.nlchp.org/documents/Housing-Not-Handcuffs.21E.g.SanDiegoLandUseOrdinance§86.0106;KirklandParkingOrdinance12.45.23022E.g.SanDiegoLandUseOrdinance§86.0143and§86.2014;KirklandParkingOrdinance12.45.24023E.g.SanDiegoLandUseOrdinance§86.0118;KirklandParkingOrdinance12.45.30024E.g.SanDiegoLandUseOrdinance§86.0137;SantaBarbaraZoningOrdinances30.175.030(M)25E.g.SantaBarbaraZoningOrdinances30.175.030(M);KirklandParkingOrdinance12.45.17026E.g.SanDiegoLandUseOrdinance§86.013727NATIONALLAWCENTERONHOMELESSNESSANDPOVERTY,NOSAFEPLACE:THECRIMINALIZATIONOFHOMELESSNESSIN

U.S.CITIES15(Nov.2011),https://www.nlchp.org/documents/No_Safe_Place[hereinafter“NoSafePlace”].28RiannaHidalgo,NowhereToGo,REALCHANGE(July22,2015),http://www.realchangenews.org/2015/07/22/nowhere-go(“[W]hatishappeningatlargewhenitcomestothenearly800peoplewholiveintheirvehiclesinSeattle...hasalltheelements:parkingregulationsthatofferlimitedoptionsandleadtoaconcentratedareaofvehicleresidents;visiblepovertyandsafetyconcernthatfuelsneighborhoodtensionsuntiltheyreachaboilingpoint;[]lawenforcementofficialscaughtinbetween[sic]therock-and-hard-placeoftryingtoenforceruleswithoutharmingvulnerablepopulations…andpublicmisperceptionsaboutwhothepeopletrulyarewhoresidewithintheRVs,trucksandcarsonthestreetsofSeattle.”).29See,e.g.,LivingattheIntersection,supranote4;Hidalgo,NowheretoGo,supranote28;NoSafePlace,supranote27.30LivingattheIntersection,supranote4.

“Even though it is safer than being outside, you still

wonder if your vehicle is going to be gone when you

get back to it. It's a small fear that I have every day.”18


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disproportionatelyaffectvehicleresidents,becausetheseresidentsrarelyhavesufficientfinancialresourcestopayparkingfines,letalonetheadditionalfinesthattowcompaniesimposeonresidentsseekingtoretrievethevehiclesfromimpoundment.31Inotherwords,parkingviolationscanleadtothegovernmentpushingthevehicleresidentsoutoftheirvehicles—theirhomes—andontothestreet.32Andunpaid,non-criminalviolationscanmutateintomisdemeanors,draggingvehicleresidentsintothecriminaljusticesystem,imposingfurtherdamagewithsubsequentfinancialburdensandsocialpenalties.33

Thisbriefisaresourceforanyoneinterestedinresearching,implementing,or

advocatingforSPPs.Itextractslessonsfromthreespecificcasestudiesofsuccessful,currentlyoperatingSPPs.34Theselessonsorganizearoundfourspecificissues:(1)initialimplementation;(2)ongoingoperations;(3)communityengagement;and(4)commonlegalconsiderations.ThelastsectionsynthesizeslessonsfromthesecasestudiesthatmayhelptosupportaspiringSafeParkingPrograms.

Case Studies ThissectionexploresthreeexamplesofSPPsinoperation:NewBeginningsCounseling

Center’s(NewBeginnings)SPPinSantaBarbara,California;DreamsforChange’s(Dreams)SPPinSanDiego,California;andLakeWashingtonUnitedMethodistChurch’sSPPinKirkland,Washington.ThesecasestudiesshedlightonhowdifferentSPPscanbestructuredandimplementedtomeettheneedsofvehicleresidents.

31RiannaHidalgo,ThePileUp,RealChange,August5,2015,http://realchangenews.org/2015/08/05/pile.ASeattlevehicleresidentrecentlywonanimportantvictoryinKingCountySuperiorCourt,whichrecognizedtheunaccountabilityofthetowcompanies'unilateraldeterminationofwhatfinestochargeforimpoundedvehiclesasviolatingtheEightAmendment'srestrictiononexcessivefinesascruelandunusualpunishment.SeeAmendedDecisionandOrderonRALJAppealat26,CityofSeattlev.Long,No.17-2-15099-1SEA(KingCty.Super.Ct.March9,2018).TheCityofSeattleisappealingthisdecision.32Groover,supranote16;seealsoT.RayIvey,TheCriminalizationofVehicleResidencyandtheCaseforJudicialInterventionviatheWashingtonStateHomesteadAct(SeattleUniversityLawReviewWorkingPaper,No.001/2018)(onfilewithauthors).33LivingattheIntersection,supranote4;seealsoACLU,INFORAPENNY:THERISEOFAMERICA’SNEWDEBTORS’PRISONS(2010),https://www.aclu.org/sites/default/files/field_document/InForAPenny_web.pdf;ALEXESHARRIS,A

POUNDOFFLESH:MONETARYSANCTIONSASPUNISHMENTFORTHEPOOR(2016).34Othergroupsthroughoutthecountryhaveexperimentedwithsafeparkingprograms.See,e.g.,OvernightParkingProgram,ST.VINCENTDEPAULSOCIETYOFLANECOUNTY,https://www.svdp.us/what-we-do/homeless-services/overnight-parking-progam/(lastvisitedApril28,2018).


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A. New Beginnings Counseling Center’s Safe Parking Program, Santa Barbara, California NewBeginnings’SPPinSantaBarbara,California,began“fourteenyearsago[with]a

formercountysupervisor,alocalnonprofit,afewhomelessadvocates,andsomewell-meaningcommunitymembers.”35

Keytotheoverallsuccessoflaunchingtheprogramwasearlysupportfromlocalgovernment.36Theideaoriginatedfromdiscussionsinaweekly“homelesscoalition”meetingattendedbyamemberoftheSantaBarbaraCountyBoardofSupervisorsandlocaladvocatesforhomelessnessissues.37TheearlychampioningoftheprogramfromtheCountyBoardSupervisorculminatedinthedraftingofcityordinances,bothinSantaBarbaraandtheneighboringCityofGoleta,toallowpropertyownerstoutilizetheirparkinginfrastructuretohostvehicleresidentsovernightasa“transitionalhousingalternative.”38

Evenwithcitysupport,

theprogramneededanexperiencednon-profittomanageit.NewBeginningsultimatelyagreedtoassumethisrole.39Fromhumblebeginnings—withonlyafewparkingspotson“localchurchesandnonprofit”properties—theprogramhas“grownintoacomplexsystemthatshelters150people…everynight.”40Theprogram’spresentcapacityincludes24communityparkinglots,donatedthroughadiversecoalitionofhoststhatinclude

35KristineJ.Schwarz,PrefacetoLOUISEJANSEN&ROBERTTAUBER,NEWBEGINNINGSCOUNSELINGCENTER’SSAFEPARKINGPROGRAMMANUAL,atvii,vii(2017).36TelephoneInterviewwithCassieRoach,SafeParkingProgramCoordinatorandSeniorCaseManager,NewBeginningsCounselingCenter(Oct.13,2017).37LOUISEJANSEN&ROBERTTAUBER,NEWBEGINNINGSCOUNSELINGCENTER’SSAFEPARKINGPROGRAMMANUAL3(2017)[hereinafterNewBeginnings-SPPManual].38Id.39Id.at4.40Id.

New Beginnings Safe Parking Program

Years in operation 14

Number of lots 24

Type of lots Public and private/religious

Nightly capacity 150

Participants targeted All vehicle residents

Operating hours Overnight only (7pm - 6:30 am)

Organizational structure

Part of larger non-profit

Staffing strategy Min. /max. approach

Primary funding source

Government grants


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faith-based,nonprofit,governmental,andprivatebusinesspropertyowners.41Itssuccessalsogarnersattentionfromlocal,national,andeveninternationalmedia.42

NewBeginnings’SPPisausefulexampleofaprogramthatoperatedsuccessfullyfor

severalyearsandeffectivelyscaleditsprogramtoincreaseitsoverallcapacity.Thesectionsbelowexamine1)howtheprogramfunctionsoperationally;2)howitapproachescommunityengagementandpublicrelations;and3)whatprimarylegalconsiderationsitencounteredandhowtheyareaddressed.

1. Operational Approaches

TheNewBeginnings’SPPutilizesacentralizedhostingmodel.Inacentralizedhosting

model,theprimaryfunctionsforadministeringtheprogramarecoordinatedthroughoneorganization:inthiscase,NewBeginnings.43Thisorganizationalapproachhassomeoperationaladvantages.

Oneoperationaladvantageistheavailabilityoffunding.AlargesourceofNew

Beginnings’fundingfortheSafeParkingProgramspecificallycomesfromgrantsprovidedfromtheU.S.DepartmentofHousingandUrbanDevelopment,eitherdirectlytotheprogramorthroughfundsmanagedthroughtheCityandCountyofSantaBarbara.44Apotentialdownsideofthisfundingmodelisthatspecificusageandfollow-onreportingrequirementstypicallyencumbersuchgrants.45Duetothecentralizedhostingmodelandthesupportofthelocalgovernment,thisfundingstrategyisidealbecausetheprogramneednotcompeteforgovernmentgrantfundingwithanyothersimilarprograms.46Thus,theprogramenjoysarelativeamountoffundingstability,as“[r]evenuevolatility…appearslessaconcernwithgovernmentfundsthanwithprivatecontributions.”47

Anotheradvantageofoperatingaspartofalargernon-profitorganizationis

programmaticefficiency.DuetotheutilizationofNewBeginnings’existingadministrativeresourcestomanagefunctionssuchas:humanresources,finance,andotherorganizationalsupportactivities,theSPPcanfunctionwitharelativelysmallteam.48Thissmallteam,

41TelephoneInterviewwithCassieRoach,supranote36.42InezKaminski,NewBeginningsCounselingCenterGetsNationalCoverage,SANTABARBARAINDEP.(Friday,June29,2012),http://www.independent.com/news/2012/jun/29/new-beginnings-counseling-center-gets-national-cov/.43NewBeginnings-SPPManual,supranote37,at4.44Id.at5.ThesegrantsincludeEmergencySolutionsGrants,CommunityDevelopmentBlockGrants,andContinuumofCareprogramfunds.See24C.F.R§570(2017);ContinuumofCareProgramLaw,Regulations,andNotices,HUDExchange,https://www.hudexchange.info/coc/coc-program-law-regulations-and-notices/(lastvisitedon10/31/2017).45NewBeginnings-SPPManual,supranote37,at4.46Id.47KarenA.Froelich,DiversificationofRevenueStrategies:EvolvingResourceDependenceinNonprofitOrganizations,28NONPROFITANDVOLUNTARYSECTORQ.,NO.3,at246,260(Sept.1999).48NewBeginnings-SPPManual,supranote37,at40.


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consistingoftwofull-timeandtwopart-timestaffmembers,coordinatesallfunctionsrelatedtorunningtheprogram.49

ToprovidebothageneralunderstandingofhowanSPPoperatesonafunctionallevel,

andtohighlightadditionaloperationaladvantagesofNewBeginnings’operationalapproach,thefollowingsectionsoutlinesomeoftheSPPstaff’sspecificoperationalresponsibilities.Thesefunctions,whichmightbetypicalinanysuchprogram,includenewparkinglotidentificationandacquisition;potentialparticipantoutreachandrecruitment;intakeandcasemanagement;andlotmonitoringandrulesenforcement.

a.NewParkingLotIdentificationandAcquisition

AllNewBeginnings’SPPstaffareencouragedtobe“onthelookoutfor”potentialnew

parkinglotsfortheprogram.51Thissearchincludeslookingfororganizations“engagedinaddressingtheissueofhomelessness”thatownpotentiallysuitableproperty.52Thesuitabilityofeachlotforthespecificneedsoftheprogramisacrucialconsideration.53Thetwoimportantcriteriaforsuitablelotsare:(1)thatthepublicdoesnotutilizethelotduringtheovernighthoursinwhichtheprogramoperates,and(2)thattheyarelocatedininconspicuousareas,suchasinindustrialzones,oroutsideofresidentialareas.54Theseconsiderationsallowfortheprogramtominimizeanypotentialconflictswithunsupportivecommunitymembersandtoprovideahighlevelofprivacyandprotectiontotheparticipants.55

Thegovernmentorreligiousorganizationstendtoownthepropertiesthatmakeforsuitablelots.56Inacquiringnewlots,programstaffaresensitivetothespecificconcernsandcircumstancesofthepropertyowner.Sincegovernmentpropertyisgenerallylargerandcentrallylocatedinrelativelyinconspicuousareas,governmententitiesmaynotbeparticular

49Id.50Froelich,supranote47.51NewBeginnings-SPPManual,supranote37,at13.52Id.53Id.54Id.(“Oneofthemainreasonswhytheprogramissosuccessfulisthatit‘fliesundertheradar.’”)Thisisapotentiallycontroversialapproach,assomeadvocacyorganizationsmightcharacterizeitasforcedseparationfromthegreatersociety,tantamounttoexilefortheparticipants.SeeJoelJohnRoberts,DoPeopleExperiencingHomelessnessDeservetobeExiled?,POVERTYINSIGHTS(Aug.26,2013),http://www.povertyinsights.org/2013/08/26/do-people-experiencing-homelessness-deserve-to-be-exiled/.ThespecificwaysthatthisstrategyhascontributedtothesuccessoftheNewBeginningsSPParediscussedinthefollowingsections.55NewBeginnings-SPPManual,supranote37,at40.56Id.

Revenue volatility may be less of an issue with government funds

than with private contributions.50


13

abouthowthelotsareutilized.57Thoselotsareusuallymoresuitableforlargervehiclesandabroaderdemographicmixofparticipants.58NewBeginningsmaintainsflexibilitytoprovideforthespecificneedsofboththeparticipantsandthepropertyownersthroughthedesignationoflotsforspecificpopulations.59Theprogramservesaverybroadcross-sectionofthevehicleresidentpopulation.60

Becauseprivate-orreligious-ownedlotstendtobeinmoreconspicuousareas,suchas

residentialareas,thepropertyownersmaybemoresensitivetosurroundingcommunityconcernsabouthowthelotswillbeutilized.61However,somecommunityconcernsarenotbasedinfact,butratherinfluencedbypopularmisconceptionsaboutvehicleresidents.62TheSPPstaffattemptstolistentoandworkwiththeowners’limitationsandpreferences.63

AnotherimportantcriterionthattheSPPconsiderswhenacquiringnewlotsisthe

availablespaceforuse.Overtheyears,theprogramdeterminedthatitisbestnottooverfillavailablelots,soit“rarelyuse[s]morethat10%to20%ofthespaces”inalot.64PotentiallotownerstendtofeelmorecomfortabledonatingtheirspacestotheprogramknowingthatNewBeginningsissensitiveaboutthepotentialimpacttothesurroundingcommunity.65Thisspacebufferensuresparticipants’privacyandhelpsavoidpotentialconflictsbetweenparticipants.66

b.PotentialParticipantOutreachandRecruitment

Activeoutreachintheunhousedcommunityandparticipantrecruitmenteffortsare

vital.SPPstaffutilizesmanymethodsofoutreachandtargetedrecruitmentofpotentialparticipants.67SPPstaffattendregularlyscheduledcommunitymeetingsthatfocusonhomelessnessrelatedissuesandotherrelevantcommunityeventsorpresentations.68SPP

57Id.(“Wehavefoundthattheworkerswhoparkintheselotstendtobecivilservants.Theytendtoberelativelyaccepting,tolerant,andcompassionatetowardtheprogram’sservices.”).58Id.59Forexample,propertyownersmayrestrictordesignatethelotsoonlywomen,orfamilies,orlargervehicles,oradultsmayusethelot.Id.60Id.61Id.Acommonobstacletosupportiveshelterorhousingprojectsisoppositionbyespeciallyvocalcommunitygroups,oftenreferredtoasNIMBYism(orNotinMyBackyardactivism).See,e.g.,KateMeans,SeattleUniversityHomelessRightsAdvocacyProject,FAITHISTHEFIRSTSTEP:FAITH-BASEDSOLUTIONSTOHOMELESSNESS(SaraRankined.,2018);EvanieParr,SeattleUniversityHomelessRightsAdvocacyProject,ITTAKESAVILLAGE:PRACTICALGUIDANCEFORAUTHORIZEDHOMELESSENCAMPMENTS(SaraRankined.,2018).62TelephoneInterviewwithCassieRoach,supranote36;seealsoVincentLyon-Callo,MakingSenseofNIMBY:Poverty,PowerandCommunityOppositiontoHomelessShelters,13CITYANDSOCIETY183,193(2001);RachelD.Godsil,BreakingtheCycle:ImplicitBias,RacialAnxiety,andStereotypeThreat,POVERTY&RACERESEARCHACTION

COUNCIL(Jan./Feb.2015),http://www.prrac.org/newsletters/janfeb2015.pdf.63Seetextdiscussingpropertyownercontractingandend-useragreements,infrapp.14-20.64NewBeginnings-SPPManual,supranote37,at14.65Id;seealsoTelephoneInterviewwithCassieRoach,supranote36.66Id.67NewBeginnings-SPPManual,supranote37,at31.68Id.


14

staffalsocultivaterelationshipswithothercommunityserviceorganizationsthatmayactasreferralsources,postflyersanddistributeinformationalpamphletsinpubliclocations,suchaslocalcollegesorcoffeeshops.69SPPstaffmayalsoconductoutreachtolocallandlordsandareabusinessestoraisegeneralawarenessoftheprogram.70

c.ParticipantIntakeandCaseManagement

OneofthemostimportantcontributorstothesuccessofNewBeginnings’SPPis

integratedcasemanagement.72Everyparticipantintheparkingprogramishighlyencouragedtoparticipateincasemanagementservices.73Casemanagementbeginsatintake.Newparticipantsbegintheprocesswhencompletinganintakeform.74ThisprocessallowsNewBeginningsstafftoconfirmthattheparticipantsmeetallprogramrequirements.75Participantsarethenplacedinlotsspecificallysuitedfortheirneeds,suchaswomen-orfamily-onlyrestrictedlots,orlargevehiclelots.76Atintake,theSPPstaffworkswiththeparticipanttoprepareacasemanagementplantoconnecttheparticipantwithresourcesandservicesbasedontheparticipant’sspecificneeds.77Suchplanscouldinclude“jobtutoring,resumepreparationandfacilitat[ing]outsideagencyconnectionsasneededtohelpparticipantsgainemploymentorobtaingovernmentbenefits.”78Theultimategoalofallcase

69Id.70Id.71Id.at69.72TelephoneInterviewwithCassieRoach,supranote36.73“CasemanagementishighlyencouragedbutwepracticetheHousingFirstmodelandcannotmandatesomeoneparticipatesinordertostayintheprogram.”E-mailfromCassieRoach,SafeParkingProgramCoordinatorandSeniorCaseManager,NewBeginningsCounselingCenter,toauthors(April17,2018)(onfilewithauthors).Generally,mandatorycasemanagementasabarriertoentryforparticipantsisapotentiallycontroversialpropositioninthehomelessadvocacyarena.SeeLow-BarrierShelters:AGoodThing,UNITEDWAYOF

KINGCOUNTY(Jun.23,2016),https://www.uwkc.org/homelessness/low-barrier-shelters/;seealsoHayatNorimine,Seattle’sFirstLow-BarrierEncampmentOpensinLictonSpringsWednesday,SEATTLEMET(Mar.31,2017,12:20pm),https://www.seattlemet.com/articles/2017/3/31/seattle-s-first-low-barrier-shelter-opens-in-lichton-springs-wednesday.TheHousingFirstmodelemphasizesthenecessityofprovidingstableandsecurehousingwithoutrequiringspecificparticipationincasemanagementpriortoaccess.See,e.g.,HousingFirst,NATIONALALLIANCETO

ENDHOMELESSNESS(Apr.20,2016),https://endhomelessness.org/resource/housing-first/.74NewBeginnings-SPPManual,supranote37,at99-106.75Programeligibilityrequirementsinclude:driver’slicense,registration,andautomobileinsurancemustbecurrent;vehiclemustbeoperational;andapplicantmustbe“homelessandlivingintheirvehicle.”NewBeginnings-SPPManual,supranote37,at69.Manyoftheserequirementsarestatutorillyorregulatorillyimposed.Seeinfranotes86-88andaccompanyingtext.76TelephoneInterviewwithCassieRoach,supranote36.77NewBeginnings-SPPManual,supranote37,at71.78SafeParking,NEWBEGINNINGSCOUNSELINGCENTER,http://sbnbcc.org/safe-parking/(lastvisitedApril28,2018).

New Beginnings’ program eligibility requirements

include a current driver’s license, registration, and

automobile insurance; the vehicle must be operational.71


15

managementis“totransitionprogramparticipantsintopermanenthousingandemployment.”79

NewBeginnings’SPPisset-upintwowaystopromoteregularcontactbetweencase

managersandparticipantstosupporttheintegratedcasemanagementapproach.First,participationintheprogramisthroughpermitonly.Thepermitidentifieswhichoneofthe24lotstheparticipantmayaccesseachevening.80Whileparticipantsmaycomeandgoastheypleasethroughouttheevening,providingflexibilityandasenseofpersonalautonomy,theyareaskedtoutilizethelotatleastfoureveningsaweek,ortheyrisklosingtheirpermittooneofthemanypotentialparticipantsontheprogram’swaitlist.81Thisrequirementsupportstheintegratedcasemanagementapproach,becauseitallowsstafftomonitorindividualcasesandtoprovidetargetedoutreach.Asaresult,thereissomecertaintyregardingwhereparticipantscanlikelybereached.82

Second,participantpermitsmustberenewedmonthly.83Themonthlyrenewal

requirementalsoensuresthatcasemanagersmaintainregularcontactwitheachparticipanttomonitortheparticipant’sprogressinimplementingthecasemanagementplan.84Activecasemanagementandmonitoringisakeyaspectofhelpingtoadvocatefortheparticipantsastheynavigatethebureaucraticbarriersthatoftenhinderprogressbackintostablehousing.85RegularcontactwiththeparticipantsalsoensuresSPPremainscompliantwithallregulatoryorstatutoryrequirements.86Manyoftheselimitations,includingtherequirementstomaintainvalidlicensingandregistrationstatus,forprogramparticipantsisafunctionoflocalordinances.87Makingtherequirementsmandatoryforparticipation,though,alsohelpswithmaintaininggoodrelationshipswiththepropertyowners,asitworkstoassuagesomeofthegeneralmisconceptionsaboutvehicleresidents.88

79Id.80TelephoneInterviewwithCassieRoach,supranote36.81Id.82Id.83Id.84Id.85Id.86Currentproofofvaliddriver’slicense,vehicleregistrationandinsuranceisrequired.SafeParking,NEW

BEGINNINGSCOUNSELINGCENTER,http://sbnbcc.org/safe-parking/(lastvisitedApril28,2018).87SantaBarbaraZoningOrdinances30.175.030(M).88TelephoneInterviewwithCassieRoach,supranote36.


16

d.LotMonitoringandRulesEnforcement

Evenwithasmallteam,theprogramstaffareresponsibleforactivelymonitoringthelotsandrespondingtoanyissuesthatmayarise.89Staffspecificallymonitorthelotsforpotentialsafetyissues,rulesenforcement,andparticipantoutreach.90

ProactivemonitoringforsafetyissuesisaparamountconcernforNewBeginnings’

SPP.“[P]arkersreportthatfeelingsecureandconfidentinthemonitoringofthelotbytheprogramis...essential.”91Staffaretrainedtoproactivelyidentifypotentialissuesandtofollowcomprehensiveprotocolsforaddressingsafetyissuesofvaryingdegreesofseverity.92Participantsarealsoencouragedtoparticipateinmaintainingasafeenvironmentviareportinganyunusualbehaviorandavoidingdirectconfrontationswithotherparticipants.Monitoringstaffareexpectedtoaddresssafetyconcernsimmediately,toavoidpotentialescalation.93Duetotheimportanceofeffectivelotmonitoring,NewBeginningsintentionallyemploysSPPstaffwithexperienceworkingwiththeunhousedpopulation.94

Ruleenforcementisarelated,andequallyimportant,responsibilityoflotmonitoring

staff.Atintake,participantsmustagreetotheprogramrulesandareinformedthatviolationscouldcauseterminationfromtheprogram.96Rulesarepostedatallparkinglots.Toensureconsistentenforcement,SPPstaffmustbeveryfamiliarwiththeprogramrulesandrequirements.Theyarealsoencouragedandexpectedtoenforcetheruleswith“goodjudgment…[andtotryto]solveproblemsonsitewiththeleastoutsideinvolvement.”97

Finally,lot-monitoringstaffmustalso

provideparticipantoutreach.Lotmonitoringprovidesthestaffwithgoodopportunitiestoconnectwiththeparticipantsoutsideofthemoreformalintakeandpermitrenewalsettings.Whiletheseoutreacheffortsfeeddirectlyintothecasemanagementservices,maintainingregularcontactwiththeparticipantsisalsoimportantforafewotherreasons.First,SPPstaff

89NewBeginnings-SPPManual,supranote37,at40.90Id.91Id.at17.92Id.at75-76,90-95.93Id.at17.94TelephoneInterviewwithCassieRoach,supranote36.95NewBeginnings-SPPManual,supranote37,at40.96Id.at100.97Id.at15.

A family with deaf parents and three children were sleeping in

their car. Their special needs made communication with agencies

difficult. SPP staff intervened on their behalf, making phone calls, setting up meetings, and writing supportive letters explaining the

family’s situation.95


17

canbuildrelationshipswiththeparticipantsthatallowthemtoproactivelyidentifyandaddresspotentialconflicts98andtoaddresstheuniqueneedsofindividualparticipants.99

Second,regularcontactallowsSPPstafftointerveneonbehalfoftheparticipants

whenevercontactwithoutsidepartiesisrequired,especiallyinlimitingtheparticipants’exposuretopotentiallytraumatizinginteractionswithlawenforcementorunsupportivecommunitymembers.100

2. Community Engagement and Public Relations Strategies

AnotherprimarycontributortotheoverallsuccessofNewBeginnings’SafeParkingProgramisitsactiveapproachtocommunityengagementandpublicrelations.NewBeginningsaimstobuildastrongreputationwithinthecommunitiesinwhichitoperates.102Manyofthespecificoperationalapproaches,discussedabove,supportthisstrategyofbuildingandmaintainingapositivereputation:forexample,theimportanceofprotectingtheprogram’sreputationinfluencesitsparkinglotsuitabilityrequirements,casemanagementfocus,andactivelotmonitoringapproach.Lotmonitorsareinstructedtorequestthattheprogramcoordinatorrespondtoanycommunitymemberissueorcomplaint.103Onceanissueisaddressedorresolved,theprogramcoordinatorisexpectedtofollow-upwiththespecificcommunitymemberthatraisedtheissue.InNewBeginnings’experience,“oncetheprogramandthelots[are]establishedandwellmonitored,complaintsfromneighbors[are]lessfrequentthananticipated.”104

NewBeginningsreliesonitspositive

reputationtobuildstrongoverallrelationshipswiththesurroundingcommunity,throughitseffortstoensuretheprogramhasanegligibleimpactonitslocalcommunity.Indoingso,theSPPcanproactivelydiffuseobjections.105Thus,therelationshipsinoculateNewBeginnings'SPPfromthefewindividualcommunitymemberswhomightsimplyobjecttotheprogram’spresenceinthecommunity.Mostofthesegeneralnegativeresponsesarebasedon“stigma

98Id.at18.99Id.at40.100TelephoneInterviewwithCassieRoach,supranote36.Formoredisussionontheimportanceofbuildingaproactiverelationshipwithlocallawenforcementseesuprapp.39.101Id.at55.102TelephoneInterviewwithCassieRoach,supranote36.103NewBeginnings-SPPManual,supranote37,at14.104Id.at7.105Id.NewBeginning’sapproachcouldjustifiablybedescribedasconservativefromahomelessadvocacyprospective.Thisbriefattemptstoilluminatesomereasonswhysuchaconservativeapproachhasprovedsuccessfulforthisparticularcasestudy,butalsotohighlightalternativeapproachesrepresentedbytheothercasestudies.

“When police know a parker is in the Safe Parking Program, we find that they are much more

likely to consider the identified parker as a local citizen.”101


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andbias…[dueto]widelyheldmisconceptions.”106Garneringsupportfromotherstakeholder-relationships—suchaslocallawenforcementandgovernmentofficials107—theSPPismorelikelytoreceivethebenefitofthedoubtwhenanobjectionisescalated.108

NewBeginningsvaluesactivelycultivatingpositiverelationshipswithlocal

government.Asdiscussed,oneoftheprogram’sinitialchampionsandfounderswasaCountyBoardSupervisorwhohelpedpropeltheprogramintoexistence.109Thisrelationshiplaidthefoundationforthesupportthattheprogramreceivedfromothercountyandcitygovernmentofficialsandadministrators,bothinSantaBarbaraandinneighboringCityofGoleta.110

NewBeginningscontinuestoinvestinitsrelationshipswithlocalgovernment

stakeholders,regularlypresentingtothecityandadministrativeofficials.111SPPstaffalsomaintainrelationshipswithlocalstateandfederallegislativerepresentativeswhoprovidevaluablesupportforgrantfundingandaccesstogovernment-ownedparkinglots.112Theprogram’sfocusonmaintainingastrongreputation,whichitutilizestostrengthenthesekeygovernmentalrelationships,istoalwaysremainapprisedofandensurecompliancewiththelawsandordinancesthataredirectlyrelevantandapplicabletotheprogram.113

NewBeginningsalsoactivelymaintainsarelationshipwithanotherkeystakeholder:

locallawenforcement.NewBeginningsprioritizesensuringthatalllocalpoliceofficersknowoftheprogram.114“WhenpoliceknowaparkerisintheSafeParkingProgram,wefindthattheyaremuchmorelikelytoconsidertheidentifiedparkerasalocalcitizen.”115Thus,theprogramregularlyconductsinformationalpresentationsduringlocalpolicebriefings.116

Lawenforcementbenefitsfromreliablecontactwithinthecommunitywheneverthere

isareportedincidentinoraroundaprogramlocation.117Therespondingofficer’sawarenessoftheprogramiskey,becausetheSPPstaffhavefoundthat“officerswhodon’tknowaboutourprogramoftenthinkitisoneofourparkerswhenaproblemisoccurring.…[eventhough]about99.9%ofthetimeitisnot.”118Further,whentheprogramandpoliceshareanunderstandingofthegoverningregulationsunderwhichtheprogramoperates,thepolice“tendtobemoresupportive…whentheyunderstandthat[theprogram]isentirelylegal.”119

106TelephoneInterviewwithCassieRoach,supranote28.107Suprapp.39.108Id.109NewBeginnings-SPPManual,supranote37,at3.110Id.111TelephoneInterviewwithCassieRoach,supranote36.112NewBeginnings-SPPManual,supranote37,at3.113TelephoneInterviewwithCassieRoach,supranote36.114NewBeginnings-SPPManual,supranote37,at55.115Id.116TelephoneInterviewwithCassieRoach,supranote28.117NewBeginnings-SPPManual,supranote37,at55.118Id.119Id.at8.


19

Relationshipsarealsoimportantintermsofbroaderpublicrelations.Unlikesomeotherhomelessresidentprograms,120NewBeginningsdoesnotprioritizeearlycommunitybuy-inbeforetheprogramstarts.Indeed,overtime,NewBeginningslearnedthatseekingcommunitybuy-inpriortoutilizinganewlotismostlycounterproductive.121Thecommunityoftenmisperceivessuchearlybuy-ineffortsasimplyingthatthecommunitywillhavesayintheday-to-dayoperationsoftheprogram.NewBeginningsfoundthatsuchearlybuy-ineffortstypicallyresultedinspendingmostofitstime“dealingwithhypotheticalproblemsexpressedbyconcernedcitizens”basedonuninformedmisconceptions.122Instead,NewBeginningsfocusesonworkingdirectlywitheachparkinglotownertoensureaproductiveandpositiverelationshipwiththatparticularstakeholderduringtheimplementationofanewSPPsiteandpursuesthepreviouslydescribeactivelotmonitoring,communityengagement,andrelationshipmanagementstrategiestomitigateanycommunityissuesthatmightarise.

Additionally,NewBeginningspursuesageneralpromotionalcampaignthroughlocal

massmediatobuildcommunityawarenessofitsprogram.NewBeginningsrunsinformationalpublicserviceannouncementsaboutitsSPPonlocaltelevision,123whichallowsNewBeginningstocontrolthenarrative.ThispositivenarrativecanbecarriedthroughintoanyinteractionsthatSPPstaffhavewithoutsidestakeholders.Thatway,ifcommunitymemberscomeacrossanSPPsite,theymightbemoreawareoftheservicesthattheprogramisprovidingtothecommunityandthedifferenceitismakinginparticipants’lives.Communityengagementandcommunicationarekey;however,NewBeginningsandotherSPPsalsomustconsidercommonlegalissues.

3. Legal Considerations

NewBeginnings’primarylegalconcernswithrunninganSPPcomefromfivedistinct

areas:insuranceliability,contractswithparkinglotowners,requirementsforgrantfunding,participantuseragreements,andcompliancewithlocalparkingregulations.124

First,NewBeginningsfoundmaintaininginsuranceliabilitycoveragerelativelyeasyto

resolvewhenextendingcoverageunderitsexistingpoliciestoincludeliabilityprotectionforthelotsandaddingthelotownersasadditionalinsureds.125Whiletheincreaseinpremiumcostsmaybesignificant,theprogramconsidersitanecessaryexpense.126Liabilityriskisaprimarybarriertoacquiringnewparkinglots,becauselotownerswanttoensuretheyare

120TranDinh,SeattleUniversityHomelessRightsAdvocacyProject&DavidA.Brewster,AnnaC.Fullerton,GregoryD.Huckaby,MamieL.Parks,UniversityofDenverSturmCollegeofLawHomelessAdvocacyPolicyProject,YES,INMYBACKYARD:BUILDINGADUSTOADDRESSHOMELESSNESS(SaraRankin,NantiyaRuan,ElieZweibeleds.,2018).121Id.at7.122Id.123TelephoneInterviewwithCassieRoach,supranote36.124Id.NewBeginnings-SPPManual,supranote37,at13.125TelephoneInterviewwithCassieRoach,supranote36.126NewBeginnings-SPPManual,supranote37,at13.


20

indemnifiedfromanyliabilityarisingasaresultofSPPuse.127Providingliabilitycoverageeliminatesthisbarrier.128InNewBeginnings’case,theSPPwasalreadygenerallycoveredunderthepolicythatcoveredallofNewBeginnings’operations,anditsinsuranceproviderunderstoodtheSPPinworkingwiththeorganizationtoexpandliabilitycoverageovertheparkinglotsandaddingthelotownersasadditionalinsureds.129

Theprogramalsocontractswithallparkinglotowners.130Thisprocessbeginswiththecreationofamemorandumofunderstandingthatincorporatesanyspecificrestrictionsthatthelotownerrequestsregardingthelot,suchasrestrictingtheservicetowomenorfamiliesonly.131Aswithanycontractingsituation,itisimportanttoseeklegaladvice.132Again,inNewBeginnings’case,theSPPbenefitsfromaccesstotheexistinglegalresourcesavailableinthelargerorganization.

Anotherimportantprogrammatic

concernisremainingcompliantwithrequirementsforgovernmentgrantfunding.Mostfundsareencumberedwithrestrictionsontheiruse.Forexample,fundsprovidedthroughtheHUDContinuumofCareprogramarerestrictedto“eligibleactivitiesandadministrationrequirementsforassistanceprovidedundertherapidre-housingcomponent.”133RemainingfamiliarwithalleligibilityandreportingrequirementsforthegovernmentfundingsourcesandensuringthattheprogramremainscompliantisaconstantconcernfortheSPP.

Anissuedirectlyrelatedwithpreviouslegalconcerns—maintainingsufficientliability

insurancecoverage,contractingwithparkinglotowners,andcomplyingwithgovernmentfundingrequirements—issecuringuseragreementsfromprogramparticipantsduringtheinitialintakeprocess.134Useragreementsareimportantforthreespecificreasons.First,NewBeginnings’requirestheSPPtosecurealiabilitywaiverfromeachparticipant.135Second,theparkinglotownersfeelmorecomfortableknowingthatparticipantsagreetofollowthe

127Id.128TelephoneInterviewwithCassieRoach,supranote36.129Id.130Id.131NewBeginnings-SPPManual,supranote37,at13.132Id.133ContinuumofCare(CoC)ProgramEligibilityRequirements,HUDExchange,https://www.hudexchange.info/programs/coc/coc-program-eligibility-requirements/(LastvisitedonOct.20,2017).134NewBeginnings-SPPManual,supranote37,at109-12.135TelephoneInterviewwithCassieRoach,supranote36.Theprogramisnotrequiredtosecuresuchawaiverfromparticipantsasaprovisionofitsextendedinsurancecoverage,butchoosestodosoforpragmaticriskmanagmentpurposes.E-mailfromCassieRoach,supranote73.

Common legal considerations for SPPs include insurance

liability, contracts with parking lot owners, requirements for

grant funding, participant user agreements, and compliance

with local parking regulations.


21

program’srulesandpolicies.136Finally,allparticipantsmustmaintaina“valid,currentReleaseofInformation(ROI)form”137tocomplywithHUDfundingHomelessManagementInformationSystemreportingrequirements.138TheROIalsoactsastheprogram’sagreementtokeepallclientinformationconfidentialandtoshareonlyinformationtheparticipantauthorizes.139

OnefinalimportantlegalconsiderationforNewBeginnings’SPPisensuringthatthe

programoperateswithinallrelevantparkingregulations.140Fortunately,NewBeginnings’benefittedfromthepassingofrelativelyfavorableandprogressivereforms.141InJuly2017,thecitycounciladoptedtheSantaBarbaraNewZoningOrdinance.ThisordinanceincludesprovisionsthatspecificallyallowforvehicleresidentswithRVstobehostedin“ParkingLotsofNonprofitOrganizations…[or]inCertainAreasofCertainZones…[orin]CityParkingLots”underspecificconditions.142However,theprogrammuststillrequirethatallparticipatingvehiclesmaintainlicenseandregistration,andremainfullyoperational,duetoanordinancethatrequires“vehiclesincapableofmovementundertheirownpowerorvehiclesnotcurrentlyregisteredforuse…[to]bestoredinanentirelyenclosedspace.”143

B. Dreams for Change’s Safe Parking Program, San Diego, California

DreamsisanotherexampleofasuccessfulSafeParkingProgram.LocatedinSan

Diego,California,thenon-profitorganizationservesSanDiego’svehicleresidentpopulationsince2009.145Dr.TeresaSmith,along-timesocialserviceprovider,initiallychampionedtheprogramafternoticinganincreaseinvehicleresidencyduringtherecessioninandaround2008.146Oneofherprimaryconcernswasthatmanyofthenewlyunhousedvehicleresidentssheencounteredwereunfamiliarwiththesocialservicesandassistanceprogramsavailableinthearea.147Thisgroupappearedtobecomposedof“workingfamilieswhoduetoanunanticipatedlife-changingeventfoundthemselveslivingintheircarswithnoideaofwhattodonext.”148Thus,Dreams’SPPwascreatedwiththe

136Id.137NewBeginnings-SPPManual,supranote37,at82.138HomelessManagementInformationSystem,HUDEXCHANGE,https://www.hudexchange.info/programs/hmis/(lastvisitedonOct.20,2017).139NewBeginnings-SPPManual,supranote37,at81.140TelephoneInterviewwithCassieRoach,supranote36.141Id.142CityofSantaBarbaraMunicipalCodeSection30.185.270.143CityofSantaBarbaraMunicipalCodeSection30.175.030.144TelephoneInterviewwithTeresaSmith,ChiefExecutiveOfficer,DreamsforChange(Oct.17,2017).145OurMission,DREAMSFORCHANGE,http://www.dreamsforchange.org/history-mission/(lastvisitedonOct.20,2017).146TelephoneInterviewwithTeresaSmith,supranote144.147Id.148OurMission,supranote145.

Dreams struggled with a lack of local government support until

the recent Hep-A outbreak, which prompted a change.144


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missionto“drawupondocumentedbestpracticesforaddressingpovertyandtoapplythosepracticestomeettheuniqueneedsofthisstrugglingpopulation.”149

PriortostartingDreams,Dr.Smithworkedforananti-povertynon-profitorganization

inSanDiego.150Inthatrole,sheworkedwithagroupofgraduatestudentsfromSanDiegoStateUniversity’sSchoolofSocialWorkandCaliforniaWesternLawSchoolwhodevelopedtheideaofimplementingaSafeParkingProgram,whichresultedinafinalresearchprojectthat“laidthegroundworkforthe[SPP].”151Dr.SmiththencreatedDreamstoputtheideaintopractice.

Theprogramlaunched

in2009whenoneareachurchprovidedparkingfacilities.152

Thelocationwasselectedbecauseitwaslargeandinconspicuouslylocated.153Afewdifferentlotshavebeenutilizedovertheyears,buttheprogramremainedrelativelysmallservinglessthan75vehicles.154Thislackofexpansionislargelyduetoalackofsupportfromlocalgovernment.155Despitethatlackofgovernmentsupport,theprogram“served2,650individualsandfamilies.”156

Butanarea-widehealthcrisispromptedashiftinrelationswithlocalgovernment.As

theSanDiegorecoveredfromaHepatitisAoutbreakthatdisproportionatelyaffectedtheunhousedpopulation,157thecitymobilizedtoprovideincreasedsupportandfundingforhomelessnessserviceproviders.ThecityapproachedDreamstoexpanditsservicesasapartofthecity’scrisisresponseefforts.158Thecityofferedtofundtheexpansionofoneutilized149Id.150TelephoneInterviewwithTeresaSmith,supranote144.151OurMission,supranote145.152TelephoneInterviewwithTeresaSmith,supranote144.153Id.154Id.155Id.156OurMission,supranote145.157CaliforniaDeclaresEmergencytoFightHepatitisAOutbreak,KPBS(Friday,October13,2017),http://www.kpbs.org/news/2017/oct/13/california-declares-emergency-fight-hepatitis-outb/.158TelephoneInterviewwithTeresaSmith,supranote144.

Dreams for Change Safe Parking Program


Number of lots 3

Type of lots Public and private/religious

Nightly capacity 150

Participants targeted Families and individuals

Operating hours Overnight only (6pm –7am)


Direct service provider

Staffing strategy Lean and efficient


Corporate/institutional donors/city


23

parkinglotby20spaces,andprovidedanewparkinglotwith60additionalspaces.159Additionally,Dreamsanticipatessecuringadditionalcity-ownedlocationsasitsrelationshipwiththecitycontinuetostrengthen.160

ThenextsectionsexploreDreams’operationalapproaches,communityengagement

andpublicrelationsstrategies,andimportantlegalconsiderations,bothincomparisonandcontrasttotheNewBeginningsprogram.

1. Operational Approaches

Dreams“providesasafeparkingenvironmentandsupportiveservicesfortransitionalhomelesslivingintheirvehiclesforovernightstays….7nightsaweek,365daysayear.”161Organizationally,Dreamsalsoutilizesacentralizedhostingmodel,butdoesnotnecessarilybenefitfromthesameoperationaladvantagesasNewBeginnings’SPPduetotwospecificdifferences.

First,insteadofoperatingwithinalarger,preexistingnon-profitorganizationasNew

Beginningsdoes,DreamswasanewandindependententitycreatedexpresslytoinitiateaSafeParkingProgram.WhileDreamsaddedtoitsserviceofferingsovertheyears,162itisstillprimarilyfocusedonsupportingthevehicleresidentcommunityinSanDiego.163

Second,Dreamsdoesnotenjoyassupportive

andproductiveofarelationshipwithlocalgovernmentasNewBeginnings.WhileDreams’relationshipwiththeCityofSanDiegoappearstobechanging,thehistoriclackofsupportfromlocalgovernmentisdirectlyreflectedintheprogram’soperationalapproaches.

OnewaythesedifferencesarerepresentedinDreams’SPPcanbeseeninitsmixof

fundingsources.AsignificantproportionofDreams’fundingcomesfromprivatedonorsandsponsors,sourceswithbothbenefitsanddrawbacks.164Muchofthefundingisunencumberedwiththespecificusagerestrictionsandreportingrequirementsthattypicallyaccompany

159ProgramOfferingHomelessOvernightParkingtoExpand,KPBS(Monday,October16,2017),http://www.kpbs.org/news/2017/oct/16/program-offering-homeless-overnight-parking-expand/.160TelephoneInterviewwithTeresaSmith,supranote144.161DREAMSFORCHANGE,SAFEPARKINGPROGRAMFORHOMELESSFAMILIESLIVINGINTHEIRVEHICLE(2017)(informationalflyer)(onfilewithauthor)[hereinafterProgramOverviewFlyer].162OurPrograms,DREAMSFORCHANGE,http://www.dreamsforchange.org/1899-2/program-summary/(lastvisitedOct.23,2017).163ProgramOverviewFlyer,supranote161.164Funders&Supporters,DREAMSFORCHANGE,http://www.dreamsforchange.org/history-mission/(lastvisitedOct.20,2017).

Some SPPs differ on approaches to parking lot

acquisition. One may strive to maintain smaller groups

in a lot, while another seeks larger groups to

build community.


24

governmentgrantfunding.165Privatefundingcanallowforgreaterflexibilityinbudgetingandplanning.166Theprimarydrawback,though,isthatprivatefundscanbelessreliableandtakeconsiderablestafftimetoidentify,acquire,andmaintain.167SuchchallengesleadDreamstopursueanefficiencymaximizingapproach.Thisapproach“usesout-of-the-boxcollaborativemodelstoserveitsclients,tooperatewithleanefficiencies,andtoutilizeinnovativestrategiesforaccomplishingitswork.”168Fundingvolatilityisalsoacontributingfactortotheprogram’slackofsignificantexpansion.169

Thelackofprogrammaticsupportfromalargerorganizationorlocalgovernmenthas

influencedthefunctionaloperationsofDreams’SPP.UnlikeNewBeginnings,whichreceiveshumanresourceandlegalsupportfromthepre-existingnonprofit,Dreamsmustoperatewithlimitedstaffthrough“leanefficiences.”170Accordingly,DreamsdemonstratessomeimportanttacticalandphilosophicaldifferencesinhowDreamsapproachesthesameresponsibilitiesidentifiedinthepreviouscasestudy,including:newparkinglotidentificationandacquisition;potentialparticipantoutreachandrecruitment;intakeandcasemanagement;andlotmonitoringandrulesenforcement.

a.NewParkingLotIdentificationandAcquisitionSomeclearphilosophicaldifferencesexistbetweenDreamsandNewBeginnings’

approachtoparkinglotacquisition.WhereNewBeginningscautionsagainstover-utilizingtheprovidedparkingfacilitiesandcounselsmaintainingsmallergroupsateachlocation,Dreamsbelievesmaintaininglargergroupshelpstheparticipants“buildacommunityenvironment.”171MuchofDreams’overallsuccesscanbeattributedtothefosteringofthissenseofcommunity;participantssupporteachotherinwaysthattheprogramotherwisewouldnothavetheresourcestoprovide.172

Dreams’historicallystrainedrelationshipwiththeCityofVistamayexplainsomeofits

philosophicalapproachtoparkinglotutilization.173Earlyon,Dreamstargetedfaith-based-organizationownedlotslocatedinVistaaspotentiallyideallocationsfortheprogram.174Despiteitsefforttoworkwiththecitytousethesepropertieswithincitylimits,DreamsfoundtheCityofVistatobegenerallydisinterestedandcombative.175Theinventoryofsuitable

165Froelich,supranote47,at260.166Id.at250(describing“the‘pure’nonprofitorganizationasonedependententirelyondonations,ideallywithoutstringsattachedsothattheorganizationcanusethefundstotallyatitsowndiscretion”).167Id.at260("Astrategyrelyingonprivatecontributionsisassociatedwithhigherrevenuevolatilitycomparedtotheotherfundingstrategies.").168OurMission,supranote145.169TelephoneInterviewwithTeresaSmith,supranote144.170OurMission,supranote145.171TelephoneInterviewwithTeresaSmith,supranote144.172Id.173Id.174Id.175Id.


25

parkingfacilitieswaslimitedbecauseDreamscouldneveraccessgovernment-ownedparkingfacilities.Insteadoffocusingonmaintainingalowprofilewithinthefewlotsitacquired,Dreamsintentionallysoughtprivately-ownedlocationsthatwerebothlargeandinconspicuouslylocatedtomaximizeusablecapacity.176

AnotherfunctionaldifferenceisthatDreamsintentionallyseeksgatedlots.177This

differencemeansthatDreamsdoesnotprovidepermitsforspecificlocations.178Instead,enrolledparticipantssign-inuponenteringthelot,anytimeduringtheoperatinghoursof6:00pmto7:00ameverynight,andmayleaveatanytime.179However,thegatescloseafter9:30pm,andparticipantsmaynolongerenterorre-enterthelotiftheyleaveafterthattime.180Whilethegatedlocationsprovideatangiblebenefitforsupportingthisapproach,fromapurelyfunctionalstandpoint,theyalsoprovidelesstangiblebenefits.Thegatedlocationslimitinteractionsbetweentheparticipantsandlawenforcement,unsupportiveoutside-communitymembers,andcuriouspassers-byorpotentialinterlopers.181Dreamsfoundthatthecommunity-at-largeislessconcernedabouttheprogram’spresence,sinceitis“contained”withinthegatedproperties.182

Whiletherecentchangeinrelationswiththecityresultedintheidentificationofat

leastonenewcity-ownedlocation,Dreamsintendstocontinueitscapacity-maximizing“communitybuilding”approach.183

b.PotentialParticipantOutreachandRecruitmentDreams’challenginghistoryinexpandingalsoplayedasignificantroleinitsapproach

toparticipantoutreachandrecruitment.Dreamseasilyrecruitedtheprogram’sinitialenrolleesthroughstreetoutreachandutilizationofalreadyestablishedconnectionsinthesocialservicesfield.184Sincethen,theprogramreliedonword-of-mouthanddirectreferralsfromotherserviceproviders.185Evenwiththispassiverecruitmentstrategy,theprogramstillmaintainsawaitlistforpotentialenrollees.186Whilethesizeofthewaitlistmightdroponcetheadditionalcapacityexpectedfromthecitycomeson-line,Dreamsdoesnotappeartoneedanysignificantchangeinapproachtoparticipantoutreachorrecruitment.

176Id.177Id.178Id.179Id.180Id.181Id.182Id.ButseeRoberts,supranote54.183TelephoneInterviewwithTeresaSmith,supranote144.184Id.185Id.186Id.


26

c.ParticipantIntakeandCaseManagementAnotherfunctionalareawherethelackofsignificantexpansionovertheyearsshaped

Dreams’approachisinparticipantintakeandcasemanagement.Dreams’approachdiffersinafewspecificways.

First,Dreamsdoesnotconsidersimplyprovidingparkingspacesalong-termsolution

foritsparticipants.Whilebothprogramsultimatelyseektomoveparticipantsintomorestablehousing,theDreamsForChangeprogramdescribesitsultimategoalaspreventing“thedownwardspiralofhomelessnessbybringingstabilitytofamiliesandindividualswhoarelivingintheirvehicles.”187Dreamsspecificallytargetsits“services[to]transitionalhomelessfamilies,childrenandindividualslivingintheirvehicle.”188Thisfocusonthe“transitional”natureofitsSPPparticipantsisakeydifferentiatorinhowDreamsbothidentifiesitsparticipantsanddeliversitsservices.MostparticipantsintheDreamprogram—70%ofwhomhaveasourceofincome—aretypicallyreluctanttoself-identifyasbeing“homeless,”butinsteadidentifyasbeing“inaperiodoftransition.”189ThistransitionalmindsetprovidesausefulframeforDreamsphilosophicalapproach.190Atransitionalapproachisintended“tofillinthegapsofgovernmentandsocialservices”thatappearedtofailthesegmentof“newly”unhousedindividualsandfamilieswhomakeupasignificantportionofthevehicleresidencypopulation.191

Indeed,theprogram’spostedeligibilityrequirementsrequireallparticipantstoaffirmativelyacknowledgethattheyare“willingtoworktowardstransition”intopermanent

187SafeParkingProgram,DREAMSFORCHANGE,http://www.dreamsforchange.org/the-safe-parking-program/(lastvisitedOct.20,2017).Thismayappeartobeaverysubtledifferenceinphilosophy,butaswillbeexplainedfurtherintheforthcomingsections,thefocusonthe“transitional”natureofitsparticipantscolorsmanyofthespecificdifferencesthatarisebetweenDreamsforChange’sandNewBeginnings’SPPs.188ProgramOverviewFlyer,supranote161.189TelephoneInterviewwithTeresaSmith,supranote144.190Id.(“Itiseasiertoworkwithsomeonewithatransitionalmentality.”).191OurMission,supranote145.

Dreams’ Wrap Around Services

Emergency Needs Assessment Blankets, bottled water, toiletries, etc.

Workforce Development Resume building, interviewing skills, etc.

Resource Development Benefits eligibility, application assistance, etc.

Individual Financial Counseling

Credit report review, tax preparation, etc.

Community Building Resource sharing, network building, etc.


27

housing,includingaprovisionindicating“[ifa]participantdoesnotseekpermanentshelter,theywillnotbeallowedtostayontheparkinglot.”192

Second,Dreams’approachtoservicedeliverythroughactivecasemanagementismoretargetedtowardthegoalofrapidrehousingandsecuringeconomicstabilityforparticipants.AllparticipantsmustagreetofullyparticipateinthecasemanagementservicesaspartoftheireligibilityfortheSafeParkingProgram.193“Casemanagersconstructanactionplanwitheachfamilyandparticipants,placingemphasisonpermanenthousingsolutions,employment,training,emergencysupportsandassetstabilizationandbuilding.”194Further,participantsmeetwiththecasemanagersonanightlybasis.195WhileDreamsmaintainspartnershipswithoutsideserviceorganizationstoassistparticipants,oneprimarydifferentiatoroftheDreamsprogramisthelistof“wraparound”servicesdirectlyprovidedtoallparticipants,196including:

• emergencyassistanceforfoodandwater,clothing,carrepairsandworkneeds

(gas,certifications,etc.)• housingsearchassistance• rentalanddepositassistance• workforcedevelopmentsoftskillsandemploymentsearch• publicbenefitscreen• individualfinancialcounselingwithcasemanager.197

Focusingonlong-termeconomicstabilization,Dreamsalsoemploysauniqueasset-

buildingmodelinitscasemanagementplansthatprovidesbasicpersonalfinanceeducationinmoneymanagement,financialplanning,andbudgeting.198Theprogram’sprimarymetricsforsuccessextendbeyondsimpleexittohousing,andthecasemanagementservicesdonotnecessarilyendwhenaparticipantcansecuremorepermanenthousing,as“casemanagerscontinuetoassistparticipantstoensurelong-termstabilization.”199

d.LotMonitoringandRulesEnforcementDuetosomeofthedifferentiatingcharacteristicsoftheDreamsprogramalready

identified,theSPPde-emphasizestheneedforactivelotmonitoringorrulesenforcement.First,thetargetedtransitional-mindedparticipants,coupledwiththeactive“community

192ClientEligibilityCriteriaforSafeParkingProgram,DREAMSFORCHANGE,http://www.dreamsforchange.org/wp-content/uploads/2016/01/Client-Elgibility-Criteria-update.pdf(lastvisitedNov.25,2017)[hereinafterClientEligibilityCriteria].193Id.Butcf.discussionoflow-barrierservicesandtheHousingFirstmodel,supranot73.194ProgramOverviewFlyer,supranote161.195Id.196Id.197ProgramOverviewFlyer,supranote161.198Id.;TelephoneInterviewwithTeresaSmith,supranote144.(“Thenumberonewayoutofpovertyisaccesstomoney.”).199ProgramOverviewFlyer,supranote161.


28

building”approach,createsanenvironmentthatallowsforeffectiveself-policing.200ThepersistentcasemanagementensuresnightlycontactwithSPPstaff,furtherreducingtheneedforactiverulesenforcement.201Thecasemanagersareactuallyseenasmembersoftheparkinglotcommunity,andtheyareofteninvitedtointeractwiththeparticipantsbeyondtheircasemanagementfunctions,regularlysharingincommunityorganizedmealsandactivities.202Inprovidingeffectiveservicestotheparticipants,thecasemanagersoftenfindthat“it’snotduringthecasemanagementsessionsthattheylearnthemostusefulinformation,it’swhentheyarejusthangingout.”203


Similarly,Dreams’approachtoparkinglotselectionandpersistentcasemanagementreducestheneedforSPPstafftoactivelyengagewiththepolice,localcommunitymembers,orthepublicatlarge.204OneoftheprimaryoperativecomponentsthatmakethispossibleisDreams’intentionalselectionofinconspicuouslylocatedandgatedparkinglots.Duetothehistoricallychillyrelationswithlocalgovernment,Dreamsbuildsreputationalcapitalwithinthegreatercommunityfrom“fly[ing]undertheradar.”205TheeffectivenessofthisstrategywasvalidatedwhenthecityacknowledgedDreamsaccomplishmentsinpartneringwiththeSPPtohelpaddresstheemergentHepatitisAcrisis.206

Whetherthisapproachmustchangegiventheprogram’sincreasedprofileinthenews

mediabecauseofitspartnershipwiththecityisstillanopenquestion.207However,Dreamsintendstoremaincommittedtoitsapproachofminimizingitsimpactonthecommunitythroughintentionallotselection,andmaximizingitsreputationthroughtargetedparticipantrecruitment,activecasemanagement,andcommunitybuildingstrategies.208

WhileDreamsdoesgenerallyseektoavoidandminimizetheneedtointeractwith

outsidecommunitystakeholdersthroughitsintentionaloperationalapproaches,itisunrealistictoimaginethiswouldeliminateneedforcommunityengagementorpublicrelations.WhenSPPstaffengagewithspecificstakeholders,whetherit’swiththepoliceorcuriousmembersofthepublic,theytryto“getacrosstheideathathomelessnesshasmanyfaces.”209ThissentimentisdirectlyinlinewithDreams’underlyingphilosophicalapproachandisechoedinallofitspubliccommunications,whichdescribesitsparticipantsasthe

200TelephoneInterviewwithTeresaSmith,supranote144.201Id.202Id.203Id.204Id.205Id.206ProgramOfferingHomelessOvernightParkingtoExpand,KPBS,supranote159.207SeeCaliforniaDeclaresEmergencyToFightHepatitisAOutbreak,KPBS,supranote157;ProgramOfferingHomelessOvernightParkingToExpand,KPBS,supranote159.208TelephoneInterviewwithTeresaSmith,supranote144.209Id.


29

“transitionalhomeless”anddescribesitsservicesinpreventingordivertingitsparticipantsfromfallingintothemuchmoredifficulttoaddressclassificationof“chronichomelessness.”210


Dreamsmustalsocontendwithallfiveprimaryareasoflegalconcernsaddressedinthe

previouscasestudy:

• insuranceliability• contractswithparkinglotowners• requirementsforgrantfunding• participantuseragreements,and• compliancewithlocalparkingregulations

Mostofitsapproachesaresimilar.Anydifferencesaremitigatedasaresultofvariances

foundinoperationalapproachesalreadyhighlighted.Forexample,Dreamsdidnotfaceproblemswhenexpandingitsownliabilitycoverage

toincludetheparkinglotpropertiesoraddingthepropertyownersasadditionalinsured.211Usinganintentionalapproachtosecurefewer,larger,propertiesspecificallysuitedfortheprogram’stargetedparticipants,Dreamsmitigatedsomecomplexitiesincontractingwithpropertyowners.TheapproachallowedDreamstopursuestandardizedcontractingarrangementsandavoidtheneedtoaddressanyspecialsensitivitiesoftheindividualpropertyowners.212

However,duetothediversityofthepropertyownersthatDreamsworkswith,whomall

havevaryingdegreesofcontractingsophistication,theorganizationiswillingtoutilizeasimpleformleaseagreementwithanindividualorreligiouslandowner,butalsowillingtopursuethemuchmoreformalcontractingprocedurestosecurepropertyfromthecitygovernment.213Thus,Dreams’issuesarenotmuchdifferentthanthosefacedbyothernonprofits,particularlyifallnonprofitsareinsomewaybeholdentothepotentialrequirementsandexpectationsoftheirfundingsources.214

OnelegalareawhereDreams’situationismateriallydifferentfromthepreviouscase

studyisthedegreeofchallengeinvolvedincomplyingwithalllocalparkingregulations.UnlikeinSantaBarbara,“SanDiegoandsurroundingcommunitieshavestrictlawsregulating

210SafeParkingProgram,DREAMSFORCHANGE,supranote187.211TelephoneInterviewwithTeresaSmith,supranote144.212Id.213Id.214Seegenerally,Froelich,supranote47.Similarlytoothernonprofits,DreamswouldstillneedtosecureliabilitywaiversandROIsinitsparticipantuseragreements.Thus,Dreamsfacesthesameissuesasothernonprofits,despitetheoperationaldifferencesalreadyidentified.


30

overnightparkingoncitystreets.”215Acursorysurveyofthecityordinancesrevealsseveralspecificprohibitionsthatdirectlyaffecttheavailabilityoflegalovernightstreetparkingforprogramparticipants,includingtimerestrictions,216permittedzoningrestrictions,217specificprohibitionsforlargevehiclesandRVs,218andspecificprohibitionsfortheuseofvehiclesforhabitation.219Duetothishighlyrestrictiveregulatorylandscape,DreamsensuresthattheSPPcomplieswithallrules.220AstherelationshipbetweenDreamsandthecitystrengthens,thepotentialforadditionalexpansionviasecuringspecialusepermitsforadditionalpubliclyownedpropertyappearstobeapromisingprospect.221

C. Lake Washington United Methodist Church’s Safe Parking Program, Kirkland, Washington LakeWashingtonUnited

MethodistChurch(LWUMCortheChurch)inKirkland,Washingtonpresentsasignificantdepartureindesign,implementation,andapproachfromNewBeginningsandDreams.

TheLWUMC’sSPPbeganin

2011outofadesireforthechurchtorespondtothetremendousissuestheunhousedcommunityfaced.Thechurchfirstofferedvehicleresidentsaccesstoitsparkinglotwithlimitedhoursandnoaccesstotheinsideofthechurchfacilities.Carcamperscouldparkafter9p.m.buthadtoleavenolaterthan7a.m.thenextmorning.222Thisapproachwasultimatelyabandonedbecausethechurchfounditlimiteditsabilityto

215SafeParkingProgram,DREAMSFORCHANGE,supranote187.216SanDiegoMunicipalCodes§86.0126,§86.0106and§86.0118.217SanDiegoMunicipalCodes§86.0107and§86.0143.218SanDiegoMunicipalCodes§86.0139.219SanDiegoMunicipalCodes§86.0137.220TelephoneInterviewwithTeresaSmith,supranote144.(“Weseekoutexisting[offstreet]parkinglotstoparkcars.”).221Id.222LynnThompson,‘Desperatelyneeded’:Churchprovidessafeparkingspacesforhomeless,THESEATTLETIMES

(September20,2015at6:33pm)https://www.seattletimes.com/seattle-news/eastside/desperately-needed-safe-parking-spaces-for-homeless/,updatedSeptember21,2015at2:04pm.

Lake Washington United Methodist Church Safe Parking Program


Number of lots 1

Type of lots Church owned

Nightly capacity 35

Participants targeted

Women and families

Operating hours 24/7


Church owned and operated

Staffing strategy Congregational volunteers


Individual donors


31

directlyinteractwiththepeopleitwasserving,andbecauseit“couldn’tofferthehelpthatcomesalongwithbuildingrelationships.”223Thechurchexperimentedwiththeprogramovertheyears,andnowhosts35vehicles24-hoursaday,7-daysaweek,providingasenseofsafetyandstabilitytonearly40individuals.224

ThemostapparentdifferencebetweentheLWUMCprogramandtheothertwocase

studies,isthatLWUMCisafaith-basedorganizationthatrunstheSPP.Thisdistinctionmayseemimmaterialatfirst,butitplaysoutinmoresignificantways,asevidenceinLWUMC’soperationalapproaches,communityengagementandpublicrelationsstrategies,andlegalconsiderations.

1. Operational Approaches LWUMCisachurchthatoperatestheSPPonchurchproperty.225Thisdistinction

impactsitsfundingstability.Becausethechurchfundstheprogramaspartofitsspiritualmission,theyhavecompleteflexibilityinhowitallocatesitsresources.226Thechurchisnotbeholdentoanyspecificfundingsources,becauseitscongregationcontinuestosupportitsdecisiontoservethisvulnerablepopulation.227

Generally,thisoperationalfreedomallowsthechurchtodesigntheprogramto

minimizetheburdensorbarriersimposedonitsparticipants.228Onesuchbarrier-reducinginnovationwasthechurch’sdecisiontoallowparticipantstoaccesstheparkinglot24-hoursaday.229Anotherinnovationwasthechurch’sdecisiontoallowtheparticipantstoaccessthechurch’sfacilities,including“accesstotheindoorbathrooms(thereisaportabletoiletintheparkinglot),kitchenandphone.”230Thekitchenaccessisauniqueservice,asparticipantscanstoretheirown

foodinarefrigeratorreservedjustforthemandreceivespecial“mealtimeaccess”tothekitchentopreparetheirownmeals“dailyfrom7to9ammostmorningsandfrom7to9pm

223TelephoneInterviewwithKarinaO’Malley,SafeParkingProgramCoordinator,LakeWashingtonUnitedMethodistChurch(Oct.17,2017).224Id.225Thompson,supranote222.226TelephoneInterviewwithKarinaO’Malley,supranote223.227Id.228Id.229Id.230SafeParkingProgram,LAKEWASHINGTONUNITEDMETHODISTCHURCH(LWUMC),http://www.lwumc.com/do/community-involvement/safe-parking-program/(lastvisitedOct.24,2017).

LWUMC allows SPP participants 24-hour access to the lot and access to the church’s indoor

facilities, including bathrooms, kitchen, and phone.1


32

everynight”outsideofthechurch’snormaloperatinghours.231ThechurchalsosecuredagrantthatallowsittoofferfreeWi-Fiaccess.232

Thisoperationalfreedomhelpsexplainseveralkeydifferencesinthechurch’s

approach.BecauseLWUMC’sSPPisnotoperatedasasocialserviceorganization,volunteersfromthecongregationmanagenearlyallofthenecessary“functions”oftheprogram,withminimalsupport,coordination,andsupervisionfrompaidchurchstaff.233

a.NewParkingLotIdentificationandAcquisitionParkinglotacquisitionisnotofsignificantconcerntotheLWUMCprogram.Instead,

thechurchismoreconcernedwithutilizingitspresentcapacitytoeffectivelyserveparticipants.234However,thechurchtriestoremainapprisedofsimilarprogramsofferedthroughotherchurchesororganizationsinthegreaterSeattle/KingCountyarea.235Whilethechurchseespotentialforacoordinatednetworkofareachurchesprovidingsimilarprogramstoincreasetheoverallcapacityofsafeparkinglocationsacrosstheregion,thisambitionisonlytheoreticalatthistime.236

b.PotentialParticipantOutreachandRecruitmentAnotherareawherethechurchhadnotfounditnecessarytodevoteconsiderable

resourcesorenergyisinparticipantrecruitment.TheSPPbegansmallandgrewtoitssizemostlyfromwordofmouth.237Thechurchmaintainsrelationshipswithlocalsocialserviceorganizationsandcommunitygroupsthatworkwithunhousedindividuals.238Asaresult,someofthenewparticipantsarealsoreferrals.239Ineitherinstance,thechurch’sgeneralapproachistolimitbarriers,allowingpotentialparticipantsto“justshowup.”240

231SAFEPARKINGHANDBOOKFORHOSTS,LAKEWASHINGTONUNITEDMETHODISTCHURCH3(April30,2016)(onfilewithauthor)[hereinafterLWUMCHostHandbook].232SafeParkingProgram,LWUMC,supranote230.233Seegenerally,LWUMCHostHandbook,supranote231.234TelephoneInterviewwithKarinaO’Malley,supranote223.235Id.236Id.237Thompson,supranote222(quotingKarinaO’Malleystating“it’sbettertofeelpulledtodomorethanpressuredtodoless.Letitgroworganically.”).238TelephoneInterviewwithKarinaO’Malley,supranote223.239Id.240Id.


33

c.ParticipantIntakeandCaseManagement

Whilethechurchpursueditscalltoservethevehicleresidentpopulationwithagenuinedesiretolimitbarrierstoaccess,ithadtomakecompromisestoappeaseitscongregationandtoensurethatitcaneffectivelysupporttheneedsofitsparticipants.242Themostsignificantcompromisewastospecificallyfocustheprogramonserving“womenandfamilieslivingintheircars.”243Thisnarrowfocuslimitsboththeindividualsallowedtoutilizethechurch’sprogram—excludingmenandadultcouples—andthevehiclesallowed—excludinglargevansandRVs.244Whilethislimitationmaynotconformtothechurch’sbarrier-reducingethos,itprovedtobeapopulardecision,notonlywiththecongregation,butalsowiththeparticipantsthemselves.245“Somewomenintheprogramsayitbringsasenseofsisterhoodandunity.”246Thissenseofcommunityisakeycomponentintheprogram’soverallsuccessbecauseitallowsfortheparticipantstodevelop“acultureofrespectandresponsibility”foreachotherandforthechurch.247

Anothercompromisethatprovedtobeuniversallypopularistheimplementationofa

formalintakeprocessfornewparticipantsthatincludesacriminalbackgroundcheck.248Whileinitiallyimplementedattherequestofthecongregation,theparticipantshavealsoexpressedanappreciationforthesenseofsecuritythatcomesfromknowingthatallparticipantshavebeenscreened.249Wheneverapotentialnewparticipantarrivesatthechurch,aslongastheparticipantisawomanorwithfamily,theymaystayforonenight.However,within24hoursofarrival,theparticipantisexpectedtospeakwithachurchvolunteerthatcanassistwiththeintakeprocess.250

Thechurch“triestoemployaharmreductionapproach.”251Inassessingthe

backgroundcheckresults,potentialparticipantsareinformedtherearenotanyautomaticallydisqualifyingconsiderations.Additionally,thereisawillingnesstomeettheparticipantswheretheyareatinthatmomentintime.252

241J.GabrielWare,It’sMoreThanaChurchParkingLot.It’saSafeZoneforHomelessWomenandFamilies,YES!MAG.(Sep.15,2017),http://www.yesmagazine.org/people-power/its-more-than-a-church-parking-lot-its-a-safe-zone-for-homeless-women-and-families-20170915.242TelephoneInterviewwithKarinaO’Malley,supranote223.243SafeParkingProgram,LWUMC,supranote230.244TelephoneInterviewwithKarinaO’Malley,supranote223.245Id.246J.GabrielWare,supraat241.247TelephoneInterviewwithKarinaO’Malley,supranote223.248LWUMCHostHandbook,supranote231,at9.249TelephoneInterviewwithKarinaO’Malley,supranote223.250LWUMCHostHandbook,supranote231,at9.251TelephoneInterviewwithKarinaO’Malley,supranote223.252Id.

“Some women in the program say it brings a sense

of sisterhood and unity.”241


34

d.LotMonitoringandRulesEnforcementYetanotherareawhereLWUMC’sSPPdiffersconsiderablyfromtheotherSPPs

discussedisinitsapproachtolotmonitoring.Thechurchappliesitsgeneralharmreductionethostoitsrulesenforcementapproach.Ontheonehand,thechurchasksallparticipantstosigna“CovenantAgreement”whichoutlinestheprogram’sspecificrulesandexpectations,253butthechurchneverfeltobligatedtoprovidepersistentlotmonitoring.254Significantly,theCovenantAgreementrequiresnoformofparticipationwiththefaith-missionofthechurch,andinthatway,thechurchremainscommittedtoitsprimarygoalofreducingthelimitationsplacedonvehicleresidentsforparticipationintheSafeParkingProgram255.Inthechurch’sexperience,thesenseofcommunityandcultureamongtheparticipantsallowedforanenvironmentwheretheparticipantscaneffectivelyself-police.256Andwhennewparticipantsareaddedtothecommunity,theotherparticipants,andnotthechurch,takeresponsibilityforbringingthemintotheculture.257

Thisflexibleapproachtorulesenforcementcanbeseeninthechurch’s“requirement”

thatallparticipatingvehiclesremaininworkingcondition.258Thechurch’sstatedpolicyisthatit“draw[s]thelineatallowingvehiclestobetowedontothelot,”buteventhisisnotahardline,becausetheprogramismoreinterestedinfulfillingitscalltoservethisvulnerablecommunitythanitisinenforcingrulesthatcouldprovetobebarrierstothatmission.259ThechurchwillworkwithparticipantstoensurethattheSPPisservingtheparticipants’needs,ratherthanaddingtotheiralreadyconsiderableburdens.260


LWUMC’scommunityengagementapproachevolvedovertheyears.Initially,the

churchdidnotfeeltheneedtoseekacceptanceorpermissionfromthesurroundingcommunity,asitsdecisiontoprovidethisservicewasdrivenfromitsgreatercalltoserve.261However,thechurch’sgoal,atleastinitially,wastominimizetheprogram’svisibilityintheneighborhood.Thiswasdonethroughlimitingthenumberofparticipants,andlimitingtheuseofthelotstoovernightparkingonly.262Thisstrategyappearedtoworkforabout2years,butthechurchrealizedthatitwaslimitingtheSPP’sscope.263Withsupportfromitscongregation,

253SafeParkingCovenantAgreement,LakeWashingtonUnitedMethodistChurch(Oct.3,2016)(onfilewithauthors)[hereinafterCovenant].254TelephoneInterviewwithKarinaO’Malley,supranote223.255Id.256Id.257Id.258Covenant,supranote253,at2.259TelephoneInterviewwithKarinaO’Malley,supranote223.260Id.261Id.262Id.263Id.


35

theChurchexpanded,knowingitcouldnolongerhidethatitwasoperatinganSPPintheneighborhood.264

Asthechurchpredicted,thesurroundingcommunitynoticedtheprogramandsome

neighborscomplainedaboutthepresenceofthevehicleresidents.266Thischangemadeforsomecontentiousrelationsintheneighborhoodforashortperiod,buteventuallytheSPP

becameanaccepted,oratleasttolerated,partoftheneighborhood.Threemainfactorscontributedtothissuccessfulresult.First,theculturethataroseamongtheparticipantswasfoundedonadesiretobegoodneighbors.267Participantsactivelyensuredthatthechurch’sneighborshadnojustifiablecausetocomplainaboutanythingbeyondtheprogram’smereexistence.268

Second,thechurchtriedtoreachout

directlytothemembersofthecommunitywhocomplained.Throughdirect,personaloutreachwithinthecommunity,thechurchconnectedtheSPP’sgoalstothegreatermissionofthechurch’scalltoservice.269Andthechurchrespondeddirectlytothecommonmisconceptionsthatanimatedsuchresistance,speaking“directlytothevalueoftheprogram”inpersonalterms.270

Overtime,thechurchnoticedashiftinperspectivesamongitsneighbors;therealities

ofthecurrentaffordablehousingcrisesandtheslowrecoveryfromtherecentrecessioneventuallyreachedeventhisrelativelyaffluentareaofKingCounty.271Asapowerfulexampleofthisshiftinperspective,oneofthefirstneighborstocomplainabouttheSPPsubsequentlyreachedouttothechurchformoreinformationaboutittohelpanacquaintanceexperiencingafinancialcrisis.272

However,evenwithdirectpersonaloutreachefforts,someofthechurch’sneighbors

werenotsoeasilyappeased.ThefinalfactorthatallowedtheSPPtoachieveitscurrentstateofpeacefulcoexistenceintheneighborhoodisthatthechurchalwaysenjoyedthetacitapprovalofthelocalgovernment.273Anexampleoftheimportanceofthisearlysupportis

264Id.265Id.266Id.267Id.268Id.269Id.270Id.271Id.272Id.273Id.

One of the earliest neighborhood opponents

of the SPP has since asked for information about the SPP to

help an acquaintance experiencing a financial

crisis.265


36

illustratedbyanincidentthatoccurredsoonafterthechurchexpandedtheprogram;oneneighbor’sattempttoescalateacomplainttothemayor’sofficeelicitedanunequivocalresponseinformingtheneighborthatthechurchcouldutilizeitspropertyinanylegalwayitsawfitandthatthegovernmentwouldnotinterfere.274


LWUMC’sSPPrealizesthemostbenefitinlegalconsiderationsbecauseitisassociated

withafaithorganizationandoperatesonchurch-ownedproperty.Thesebenefitsstemfromtwoprimarysources.First,becausethechurchisutilizingitsownresourcesandproperty,thechurchneednotsignanyunusualcontractsormeetanyspecificfundingrequirements.

Second,thechurch’sactivitiesaregenerallyprotectedundertheReligiousLandUse

ProtectionAct(RLUPA).275Thisstatutelimitshowthegovernmentcanregulatehowreligiousinstitutionsutilizetheirlandinexercisingtheirreligion.276InoneexampleofthesignificantdifferencethisprotectioncanmakeoccurredwhenagovernmentofficialaffirmativelyinvokedRLUPAtoaddressacomplaintabouttheprogramfromanareahomeowner.IninvokingRLUPA,theofficialstated“therewasnothingthegovernmentcando.”277Towhatextentthisisactuallytrueisfarmorecomplexthanwillbeexploredinthisbrief,278butitisillustrativeofamajoradvantagethismodelhasoverthepriortwocasestudiesinlegalconsiderations.

AlthoughtheCityofKirklandhasanordinanceprohibiting“abandoned”vehiclesor

vehicleswithexpiredorimproperregistrationfromparkingonpublicstreets,279becausethechurchallowsparticipantstoutilizeitsprivateparkinglot24-hoursaday,7-daysaweek,280theSPPdoesnothavetoensurethatparticipantscomplywithcityordinancesregardingoperabilityorlicensingandregistration.281

However,thereisstilloneareawherethechurchdealswithsomeofthesamelegal

considerations:liabilityinsurance.InLWUMC’scase,thechurchdiscoveredthatitsindividualinsurancepolicywaspartofagrouppolicynegotiatedthroughthelargerWesternJurisdictionoftheUnitedMethodistChurch,towhichitbelongs.Thisrelationshipmadeiteasier,and

274Id.27542U.S.C.A.§2000cc.276Id.277TelephoneInterviewwithKarinaO’Malley,supranote223.278Foramorethoroughdiscussionoftherightaffordedfaithorganizationsprovidingsocialservices,seeKateMeans,SeattleUniversityHomelessRightsAdvocacyProject,FAITHISTHEFIRSTSTEP:FAITH-BASEDSOLUTIONSTO

HOMELESSNESS(SaraRankined.,2018).279Seegenerally,KirklandParkingOrdinances12.40.280ThechurchdoesaskparticipantstovoluntarilymovetheirvehiclestemporallyonSundaymornings,toensureenoughspacesareavailableforcongregationmembersattendingservices,butaspreviouslydiscussed,thisruleisenforcedwithaharmreductionapproach,andthechurchhasbeenwillingtoworkwithparticipantforwhommovingwouldbeahardship.TelephoneInterviewwithKarinaO’Malley,supranote223.281Id.


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ultimatelycheaper,tosecurethepolicychangestoincludeliabilitycoverageoftheSPP.282However,attheinsurancecompany’srequest,thechurchincludesaliabilitywaiverinitsparticipantcovenantagreement.283

CONCLUSIONS AND RECOMMENDATIONS

Whilemanypotentialconclusionsandspecificlessonscanbedrawnfromthesethreeprecedingcasestudies,afewstandoutbecauseoftheircentralitytothesuccessfulimplementation,resilience,andexpansionoftheseprograms:(1)thesignificanceoffundingdecisions,(2)theneedtobuildkeyrelationships,and(3)theimportanceofgeneratingreputationalcapital.Thissectionattemptstoilluminatetheselessons,identifywhytheyappeartobesovitaltotheoverallsuccessoftheseprograms,anddistillthespecificcasestudiesintomorebroadlyapplicablerecommendationsorconclusions.

A. Funding Sources SPPsshouldunderstandtheramificationsofutilizingspecificfundingsources.While

thisissueisnotuniquetoSafeParkingPrograms,thecasestudiesillustratehowdifferentfundingsources,orthemixoffundingsources,candirectlyinfluencehowanSPPisdesignedandimplemented.

Dependenceoncertainfundingsourcescandriveaprogram’sscope.NewBeginningsis

adirectexampleofthiseffect.NewBeginningstracksandmonitorsspecificsuccessindicatorsdirectlyalignedwiththereportingrequirementsdictatedfromtheHUDgrantsuponwhichtheprogramheavilyrelies,andwhicharespecificallyrestrictedforcertainuses,suchasrapid

282Id.283Covenant,supranote253,at3.

PRIMARY FUNDING SOURCES

NBCC Dreams for Change LWUMC

Source Government Large Private Donors Individual Donors

• State/County ESGs • Grants: HUD CDB

& HUD CoC

• Verizon • Rancho Santa Fe • Leichtag

• Members of the congregation

Pros • Stability • Reliability

• Relative flexibility • Autonomy • Low acquisition costs

Cons • Goal displacement (rapid-rehousing)

• Goal alignment (“transitional homeless”)

• Acquiescence (compromises)


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rehousing.284Ifpermanenthousingoptionsaresimplyunavailable,exittopermanenthousingwilllikelybeapoorindicatorofsuccessfromtheperspectiveofmostvehicleresidents,285whichcouldputsuchfundingsourcesatgreaterrisk.

Whilenon-governmentalfundingsourcesmaybelessrestrictive,relianceonlarge

privatefundingsourcescanexertsimilarinfluencesonoperationaldecisions.286ThisinfluenceisrepresentedinDreams’approach.Thecritiqueofexit-to-housingasasuccessindicatorisespeciallyaptinSanDiego'stighthousingmarketwhere“thecounty'sapartmentvacancyrateplungedto3.7percent[inthespringof2017],downfrom5.4percentlastfall.”287

However,accesstofundingiscriticalinanyorganization.Withoutit,therewouldbeno

SafeParkingProgram.ThekeyforDreamsisidentifyingitsprogramasa“homelessnesspreventionordiversion”service288,andspecificallytargetingparticipantswhoidentifyasbeing“transitionalhomeless.”289Indoingso,Dreamscanstraightforwardlycommunicateadiscrete,andpresumablyachievable,objective—earlyinterventiontopreventprogramparticipantsfrombecoming“chronicallyhomeless”—whichcanbeempiricallymeasuredandquantifiedforlargecorporateorinstitutionaldonors.290

Thisfunding-sourceinfluenceisevenseeninLWUMC.Whilethechurchhasmuchmore

flexibilityandautonomyinhowitutilizesitsfunds,itisstillultimatelybeholdentothewillofitscongregation,itsprimaryfundingsource.Thisinfluenceisillustratedbysomeofthe“compromises”thatthechurchmadeinimplementingitsprogram,suchasits“womenandfamiliesonly”participantfocusoritsbackgroundcheckrequirement.Whilethesedecisionshaveultimatelyproventobepopularwiththeparticipants,theyillustratejusthowpowerfulaninfluencefundingsourcescanexertontheactualscopeofaSafeParkingProgram.

Itmaynotbepossibletoavoidthehighriskof“goaldisplacement”associatedwith

mostfundingmodels.291Therefore,identifyingandunderstandingtheramificationsofspecificfundingdecisionsiscriticaltothesuccessfulimplementationofanSPP.Duetothedirectinfluencefundingdecisionshaveonseveralfundamentalaspectsoftheprogram,includinghowtheprogramdefinesandmeasuressuccess,andevenitscorephilosophicalidentity,the

284NewBeginnings-SPPManual,supranote37,at6-7.285TelephoneInterviewwithJesseRawlins,LegislativeAideforSeattleCityCouncilMemberO’Brien(Sept.22,2017).286Froelich,supranote47,at260(“Thelinkbetweenacorporation’scontributionpatternsanditsownself-interestappearstobegettingtighter….carefullytargetedgivingpracticescanresultingoaldisplacementinrecipientorganizations.”).287SanDiegoApartmentVacancyRatePlunges,KPBS(Monday,June26,2017),http://www.kpbs.org/news/2017/jun/26/san-diego-apartment-vacancy-rate-plunges/.288TelephoneInterviewwithTeresaSmith,supranote144.289OurMission,supranote145.290KIRSTENA.GRONBJERG,UNDERSTANDINGNONPROFITFUNDING65(1993)(“Organizationaldonorsaremorelikelythanindividual[donors]torequirerecipientorganizationstoexhibitspecifiedtypesoforganizationalbehaviorasaconditionformakingthedonation.”).291Seegenerally,id.


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impactofthesedecisionswillalsolikelybeindirectlyrepresentedinlaterimplementationdecisions,includingitsoperationalapproach,itscommunityengagementandpublicrelationsstrategies,andhowitaddressesimportantlegalconsiderations.

B. Relationships BuildingandmaintainingcertainkeyrelationshipsisalsokeytoSPPsuccess.Thetwo

mostimportantstakeholdergroupsappeartobelocalgovernmentofficialsandlocallawenforcement.

BothNewBeginningsandLWUMCdirectlybenefitedfromtheearlysupportoflocal

government.ThisbenefitisperhapsmostclearlyevidentinNewBeginnings’case.HavingaCountyBoardSupervisorasanearlychampionoftheprogramhelpedtogarnersupportthroughoutlocalgovernmentalandresultedintheCityofSantaBarbaradraftingan“ordinancethatpermittedparkinglotownerstoallowtheovernightuseoftheirpavedparkingarea[sic]asatransitionalhousingalternative.”292Andtheprogramleveragesthoserelationshipstogarnersupportforitsfederalfundingapplications.293

ForLWUMC,itbenefittedfromitspositiverelationshipwiththecityprimarilyin

supportinthefaceofcommunityresistance.BecausetheprogramhadthesupportoftheCityofKirkland,upsetneighborswereencouragedtoengagewiththechurchdirectly.ThissupportlaidthegroundworkforthechurchtohavetheproductiveconversationsthateventuallyledtotheSPP’sacceptanceasanintegratedpartofthe

neighborhood.Similarly,allthreecasestudiesindicatedtheimportanceofmaintainingpositive

relationswithlocallawenforcement.NewBeginningstakesanactiveapproachthroughworkingdirectlywithlocalpolicetoensureawarenessamongtheofficersandactingasprimarypointofcontactforalllotrelatedissues.Dreamstakesamorepassiveapproach,intentionallydesigningtheprogramtocomplywithallregulatoryprovisions,selectivelychoosinginconspicuouslotlocations,andengaginginactivelotmonitoring.Ineithercase,theimportanceofremainingonpositivetermswithlocallawenforcementisclear.Thegoalisto

292NewBeginnings-SPPManual,supranote37,at3.293Id.


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ensurealignmentwithpoliceexpectationsandtominimizetheneedfordirectinteractionbetweentheparticipantsandlawenforcement.

SafeParkingProgramsshouldseektobuildandmaintainpositive,productive

relationshipswithlocalgovernmentandlawenforcementofficials.Theserelationshipscaninfluencetheeffectivenessoftheprogram’scommunityengagementandpublicrelationsandcanincreasetheparticipants’senseofstabilityandsecurity.

C. Reputational Capital Allthreecasestudiesalsohighlighttheimportanceofbuildingreputationalcapital.

EachofthethreeorganizationsleverageditsrespectivereputationtothebenefitofitsSPP.ForNewBeginnings,itsreputationgarnereditanincredibleamountofpositivemediaattention.294ForLWUMC,theprogram’sreputationofbeinga“goodneighbor”ultimatelyledtowinningoversomeofthemostresistantcommunitymembers.295ButperhapsthestarkestexampleoftheimportanceofreputationalcapitalisintheDreamscasestudy.Afteryearsofunsuccessfulattemptsatbuildingaproductiverelationshipwithlocalgovernment,DreamsbecameoneofthefirstbeneficiariesoftheCityofSanDiego’scrisisresponseactivitiesinthewakeofthesuddennationalmediaattentionfocusedontheHepatitisAoutbreak.296ThisbenefitisduelargelytoDreams’sterlingreputationwithinthehomelessnessservicescommunity.297

Twokeyconsiderationsappeartobedirectlyrelatedtohowthecasestudiesbuiltand

maintainedastrongreputation.ThefirstfactorcomesfromintentionallyconsideringthesuitabilityoftheparkinglotsandlocationschosenfortheSPP’sintendeduse.ThiseffectcanbeseeninthecontrastbetweenthelotsNewBeginningsandDreamstargeted,basedontheirrespectiveutilizationphilosophies.Dreamsisveryparticularaboutfindinglotsthatarelargeandinconspicuouslylocated,withaspecificpreferenceforgatedlots.ThispreferencestemsfromDreams’approachtolotutilization,whichistomaximizeusablespacetoallowfordevelopinganauthenticsenseofcommunityamongtheparticipants.Thesizeandinsulationoftheparkinglotlocationsisimportanttoensuringthattheprogramminimizesitspotentialnegativeimpactonthesurroundingcommunity.Conversely,becauseNewBeginningsintentionallylimitstheusageofitsparkinglotstoonly10-20%oftheactualcapacity,itsSPP294Kaminski,supranote42.295TelephoneInterviewwithKarinaO’Malley,supranote223.296CaliforniaDeclaresEmergencytoFightHepatitisAOutbreak,KPBS,supranote157;GaryWarth,HomelessWhoSleepinCarstoGetThirdParkingLotonCityLand,SANDIEGOUNION-TRIB.(Oct.16,2017,9:55am),http://www.sandiegouniontribune.com/news/homelessness/sd-me-homeless-parking-20171016-story.html.297TelephoneInterviewwithTeresaSmith,supranote144.298Warth,supranote296.

“San Diego Mayor Kevin Faulconer announced Monday

morning that Dreams for Change will begin using 60 spaces in a

city-owned parking lot.”298


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cantargetmoreconspicuouslocations.NewBeginningsisalsowillingtoworkwithparticularlotownerstofurtherrestrictusageatspecificlotstocertaindemographicswithinitsparticipantcommunity.Whileinbothstudies,thesedecisionsappeartobeintentionallymadebytherespectiveprograms,thespecificcharacteristicsoflotscoulddictatewhichutilizationapproachwouldbebestatthestart-upofanewSPPinadifferentarea.Startingsmallandbuildingastrongreputationbeforetryingtoexpandinsizeorscopeisarecommendationthatcanbetakenfrombothcasestudies.

D. Final Conclusions SafeParkingProgramsarenotandcannoteverbeanultimatesolution.Nomatterhow

successfulaSafeParkingProgramisitwillnotendpoverty,itwillnotredistributewealthmoreequitably,anditwillnotprovidesafe,reliable,andaffordablelong-termhousingfortheentirepopulationofunhousedindividuals.Despitetheselimitations,vehicleresidents’immediateneedforsafe,legal,andreliableparking,especiallyovernight,cannotbeoverstated.Theperfectshouldnotbetheenemyofthegood.

SafeParkingProgramsprovideavitallyimpactfulsolutiontoanurgentneedfeltfroma

significantportionoftheunhousedcommunity.WhilethefullscopeandimpactofanyparticularSPPmaybelimitedbyfactorsoutsideofthecontroloftheorganizationattemptingtoimplementtheprogram—includingthesourceoffunding,thesupportoflocalgovernment,theextentofregulatoryhostility,andtheavailabilityofsuitableparkingfacilities—thesecasestudies,andthegenerallessonsandrecommendationsthatcanbedrawnfromthem,illustratethatSPPscanmeetthisimportantneedforthevehicleresidentstheyserve.


Documents

Hidden in Plain Sight: Finding Safe Parking for Vehicle