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City of Fremont |

DirectDischargeTrash Control ProgramFebruary 1, 2018

Submitted in accordance with provision Section C.10.e.ii of the Municipal Regional StormwaterNPDES Permit No. CAS612008

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PURPOSE AND SCOPE

BACKGROUND2.1 City of Fremont 2.2 Fremont’s Long Term Trash Load Reduction Plan 2.3 Direct Discharged Trash Sources 2.4 Regional Water Quality Control Board Resolution

HOMELESS CONDITION AND SUPPORT PROGRAMS 3.1 Overview of Homeless Condition in Fremont 3.2 Support Programs3.2.1 Human Services Department Programs3.2.2 Shelters and Other Services for the Homeless 3.2.3 Affordable Housing3.2.4 Partnerships3.2.5 Fremont Initiatives to Address Housing Shortage

DIRECT DISCHARGE TRASH CONTROL PROGRAM4.1 Purpose4.2 Staffing and Resources4.3 Identification of Encampments4.3.1 Coordination4.3.2 Encampment Response Process4.4 Current Conditions4.4.1 Overview4.4.2 Prioritized Areas of Direct Discharge and Effectiveness Evaluation4.4.3 Cleanup Results of Prioritized Areas4.4.4 Re-Encampment Prevention and Enforcement4.4.5 Re-Encampment Deterrents4.4.6 Other Site Management Techniques

ASSESSMENTS, MONITORING AND EVALUATING5.1 Site Assessments and Effectiveness Evaluations5.2 Encampment Counts (Waterway and On-Land)5.2.1 Number of Encampments Along Waterways5.2.2 Number of On-Land Encampments

5.2.2 Number of On-Land EncampmentsCONCLUSION

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Exhibits

1 2017 Homeless Census and Survey Report

2 Homeless Complaint Entry System

3 Assessment and Evaluation Form: Homeless Encampments

and Hot Spots

4 Notice to Abate Nuisance Placard

5 Policy on Unattended Property Located on Public Property

and Right-of-Way

6 Overview Map of Affected Receiving Waters and Associated

Watersheds

City of Fremont | Direct Discharge Trash Control Program

Purpose and Scope1

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The purpose of this report is to document Fremont’s plan to manage to the extent practicable, direct discharge of waste to receiving waters from non-storm drain system sources. Provision C.10.e.ii of NPDES Permit No. CAS612008, (adopted November 19, 2015) allows Permittees to offset part of their provision C.10.a trash load percent reduc-tion requirement by implementing a comprehensive plan, approved by the Executive Officer to control direct discharges of trash to receiving waters from non-storm drain system sources. The provision sets a maximum of 15% offset credit and requires the plan to be submitted by February 1 of the first year in which offsets are to be reported in the Annual Report.

This plan includes the following required elements:• description of sources of the directly discharged trash;

• description of control actions that will be implemented during the permit term toprevent or reduce direct discharge trash loads in a systematic and comprehensivemanner;

• map of the affected receiving water area and associated watershed; and

• description of how effectiveness of controls will be assessed, including documenta-tion of controls, quantification of trash volume controlled, and assessment of result-ing improvements to receiving water conditions.

The City is requesting approval from the San Francisco Bay RWQCB Executive Officer to claim the maximum 15% trash load reduction offsets through implementation of this comprehensive management plan as allowed in Section C.10.e.ii of the Municipal Regional NPDES Permit.

City of Fremont | Direct Discharge Trash Control Program 22

2 Background

2.1 City of FremontThe City of Fremont is located on the southeast side of the San Francisco Bay. As the15th largest city in California, Fremont spans an area of 90-square miles, making it the fourth most populous city in the Bay Area. Fremont is home to over 220,000 resi-dents and is one of the most ethnically and culturally diverse cities in the Bay Area.

2.2 Fremont’s Long-Term Trash Load Reduction PlanOn January 31, 2014, the City of Fremont submitted to the RWQCB the “Long-Term Trash Load Reduction Plan and Assessment Strategy” plan (Long-Term Plan) in com-pliance with provision C.10.c of the Municipal Regional Stormwater NPDES Permit for Phase I communities in the San Francisco Bay Area (Order R2-2009-0074). The Long-Term Plan acknowledged the City’s understanding that the achievement of clean waterways leads to a healthy city. The goal of the Long-Term Plan was to effectively manage and minimize the potential impacts of trash on receiving waters associated with discharges from the City of Fremont’s Municipal Separate Storm Sewer System (MS4) that are regulated by NPDES Permit requirements.

The Long-Term Plan established a framework of short-term and long-term actions needed to reduce Fremont’s trash load and continues to guide the City’s efforts today. Per the Long-Term Plan, the City is pursuing further methods to meet the mandatory trash re-duction targets associated with the City’s MS4.

2.3 Direct Discharged Trash SourcesFremont has approximately 47 miles of creeks and 64 miles of engineered channels run-ning through its jurisdiction within eight watersheds. As noted in the City’s Long-Term Plan, trash is transported to creeks in Fremont directly through a number of different pathways other than the City’s MS4 including; on-street litter blown by wind directly into waterways, trash dumped illegally by residents into creeks, and trash and debris left behind or dumped by homeless residents who camp in/near waterways.

The City’s litter control measures are described in the Annual Report and include the following:• Installation and maintenance of 1,629 connector pipescreen full trash capture

devices

• Installation and maintenance of trash capture chambers included in 132 tree wellstormwater treatment devices located throughout the City

• Monitoring of 30 hydrodynamic separators at private development sites

• Street sweeping


• Installation and servicing of public litter cans in high trash generation areas

• Periodic on-land and creek cleanups

• Public education and outreach

The City’s illegal dumping abatement efforts are also described in the Annual Report and include:• Visual assessments of problem areas

• Maintenance staff positions dedicated to responding to litter and illegal dumpingactivity

• Cleanups of illegal dumping as needed

• Enforcement

Homeless encampment waste is a growing problem and the City has responded with new programs, procedures and staffing to address the challenge. This direct discharge trash control plan focuses primarily on how the City is managing homeless encamp-ment waste.

2.4 Regional Water Quality Control Board Resolution On May 13, 2015, the San Francisco Regional Water Quality Control Board (RWQCB) adopted a resolution to encourage local agencies to undertake efforts to eliminate and prevent adverse water quality impacts from homeless encampments. The resolution finds that discharges or dumping of trash and human waste from homeless encamp-ments poses a significant threat to water quality and public health, and identifies the need for clear and measurable goals for protecting and restoring water quality. In addition, the resolution acknowledges the problem of trash and human waste discharg-es from homeless encampments is entwined with complex and challenging societal issues, including poverty, the Bay Area’s high cost of living, under-employment and unemployment.


Homeless Conditionand Support Programs

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3.1 Overview of Homeless Condition in FremontThe 2017 Homeless Point-in-Time Census and Survey Report (Exhibit 1) estimated Fremont homeless population at 479. Approximately 59% of the homeless population is unsheltered, including 282 people living in encampment areas. Fremont’s specific homeless population data is not available prior to 2017, as homeless population data was aggregated by County; however, the number of encampment sites appear to have grown exponentially, particularly in the last two years.

Fremont has experienced a surge of development with many in-fill projects, restricting the number of undeveloped locations where homeless persons may inconspicuously reside. This development in conjunction with abatement efforts on public and private property, and from abandoned buildings, has led to a shift in encampment populations to other locations such as waterways. Through its assessment procedures, the City has identified 133 encampment locations with varying levels of activity, of which 18 are near waterways.

3.2 Support ProgramsManaging and redirecting the homeless population from waterway areas is critical to mitigating the water quality impacts from homeless encampments. The City provides and participates in a number of programs and services to help address the homeless problem which is growing in both urban and rural areas throughout California. This sec-tion also describes partnerships and other measures the City is undertaking to address its housing shortage.

3.2.1 Human Services Department ProgramsThe Human Services Department oversees the City programs for children, youth, fami-lies, and seniors. The Department also coordinates various volunteer opportunities and grants to the community. For over 40 years, the Department has worked side by side with those they serve and support, to strengthen families and individuals, and help them meet their own goals for success.

The Human Services Department has three operating divisions offering direct services including:• Youth & Family Services

• Aging and Family Services (including the Senior Center)

• Family Resource Center (co-locating 25 State, County, City and non-profit agenciesserving families and children)


The Human Services Department also operates a Winter Warming Center for the home-less. In 2016, it served 271 homeless persons ranging in age from 6 months to 81 years.

Youth & Family ServicesThe City of Fremont Human Services Department offers counseling and education for parents, children, and teens that help strengthen family relationships and those with both mental health and substance use issues. It places mental health counselors in schools and in the Police department. Youth and Family Services have been helping Fremont families for more than 30 years.

Aging and Family ServicesThe Aging and Family Services Division of the Human Services Department offers sup-port for older adults over the age of 60, their caregivers, and the general community. They help elders and family members obtain information about available resources.

The Aging and Family Services staff is a dedicated team of multilingual (including English, Spanish, Farsi, and Mandarin) professionals. They have diverse backgrounds in social work, nursing, psychology, public health, and gerontology. They work closely with other agencies that serve seniors and their families. Staff make home visits to help co-ordinate services that help aging individuals remain independent and in their own home for as long as possible. They also provide living enrichment and wellness programs at the senior center.

Fremont Senior CenterThe Fremont Senior Center, a “second home” for thousands of seniors in our communi-ty, provides a broad range of classes, workshops, services, and events throughout the year. The Fremont Senior Center also operates a healthy meals program, plans exciting day trips and overnighters, and rents its facilities to community groups. During the win-ter months, the Senior Center is the primary location for the Warming Center, a place for homeless persons to sleep, eat and shower.

Family Resource CenterThe City’s Fremont Resource Center is a welcoming place where families and indi-viduals are nurtured, encouraged, and offered quality services to build on their own strengths to help themselves and others. The FRC accesses over 25 State, County, City and nonprofit agencies providing a variety of integrated services.

3.2.2 Shelters and Other Services for the HomelessWarming Center The Human Services Department collaborates with the City Serve Compassion Network to run the Fremont Warming Center, which provides services in the evening at the Fremont Senior Center, for homeless individuals and families. The Warming Center is open from mid-November to mid-March. In the 2016/2017 fiscal year, the Warming Center served a total of 271 unduplicated homeless persons ranging in age from 6 months to 81+ years, for a total of 2,067 night-stays.

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Abode ServicesAbode Services, a non-profit agency, is a primary provider of homeless services in Fremont, and now provides services in multiple counties. Abode Services operates Sunrise Village, Fremont’s homeless shelter as well as other transitional and supportive housing programs. They offer a broad array of support services, including the HOPE Mobile Health van, in conjunction with Tri-City Health Center, which provides health and social services to people in southern and eastern Alameda County experiencing homelessness.

They also provide street outreach workers who coordinate closely with City depart-ments like Code Enforcement, Police, Human Services and Environmental Services in working with those in homeless encampments. Abode Services has housing navigators which help to secure permanent housing and supportive housing for individuals and families experiencing homelessness.

Abode’s Allied Housing, its non-profit housing development arm, has become a de-veloper of affordable housing. Allied Housing, in partnership with Mid Pen Housing, another non-profit housing developer, is responsible for the development of Main Street Village, which opened in 2011 and houses over 100 households, and Laguna Commons, which opened in Fremont in 2016. Laguna Commons offers 64 new homes to at-risk households. Over a third of the units are dedicated to veteran families. Many residents of both of these developments were formerly homeless. A new affordable project of supportive housing is slated for development in the Centerville area.

Abode Services operates Sunrise Village Homeless Shelter and other transitional shel-ter services. The shelter serves individuals and families with children and provides job counseling, support groups, and other services. This is a residential program. The shelter has 66 beds, and served 300 homeless persons in 2016.

SAVE (Safe Alternatives to Violent Environments) SAVE is a nonprofit agency serving victims of domestic violence and their children. Services include a 24-hour crisis hotline, emergency shelter, transitional housing, indi-vidual counseling, free drop-in support groups, employment and housing assistance, legal assistance, and children’s programs.

CityServeCityserve is a network of over 60 congregations that provide

community ministries in Fremont, Newark, and Union City. In June of 2007 they created the Compassion Network, and opened the Compassion Network offices inside the Fremont Family Resource Center. City Service mobi-lizes over 2000 volunteers in the community providing a variety of supportive service and works closely with members of the homeless community and others who

are in need. They organize the volunteers and the dinner meal program at the Warming Center for the homeless.

Senior Center


3.2.3 Affordable HousingAffordable Housing OrdinanceIn 2010, Fremont adopted the Affordable Housing Ordinance (Title 18, Division 1, Part 6, Chapter 18.155, of the City’s Municipal Code) which was updated in 2015. The purpose of the Ordinance is to foster an adequate supply of housing for all persons at all economic levels, thereby ensuring the preservation of an economically balanced community.

City Center ApartmentsOn November 7, 2017, the Fremont City Council authorized $4.1 million in funding to purchase land and to cover pre-construction costs for City Center Apartments, a new affordable housing development in the Centerville District to be built by the Fremont-based nonprofit Allied Housing. The project, which will consist of 60 studio and one-bedroom apartments, will house 60 low income and special needs households, in-cluding veterans. Sources of funding include the City’s federal Community Development Block Grant (CDBG) allocation, affordable housing fees paid to the City by developers of market-rate housing, and an advance from a local developer for assistance in pur-chasing the property. The City’s award will help Allied Housing to compete for additional federal, state, and county funding.

Rent Review OrdinanceOn October 3, 2017, the Fremont City Council adopted the Rent Review Ordinance which went into effect on January 1, 2018. The ordinance covers all residential rental units in Fremont, including single family homes. The Rent Review Program provides for a review, mediation and, if necessary, a formal hearing, before a new Rent Review Board, for proposed rent increases in excess of 5 percent in any 12-month period.

3.2.4 PartnershipsThe Mobile Evaluation Team (MET) This newly created unit is a partnership between the Fremont Police Department and Alameda County Behavioral Health. The program partners a uniformed Fremont police officer with a licensed mental health clinician. The overarching goal of MET is to provide a more comprehensive response to calls for service involving com-munity members going through a mental health crisis and to be a resource for community members struggling with mental illness (frequently homeless), as well as their caregivers and loved ones. Currently two sworn Fremont police officers and one police sergeant is assigned to the unit. The de-partment is awaiting mental health workers which have been promised by Alameda County.

Alameda County-wide Coordinated Entry System Beginning in 2018, a county-wide Coordinated Entry System has been implemented to provide a shared and

City Center Apartments Rendering


standardized method for connecting people experiencing homelessness to the resourc-es available in a given community. Homeless persons will be assessed and prioritized for housing services with the most vulnerable being offered housing options first. Vulnerability will be based on the individual's, health and mental health condition, age, etc. Coordinated Entry assesses people’s housing-related needs, prioritizes them for resources, and links those in need to a range of types of assistance, including immedi-ate shelter and longer-term housing focused programs.

CAREavan ProgramFremont participates in the City of Union City’s safe overnight parking program called CAREavan Program. Fremont staff refer homeless individuals who sleep and live in their vehicles or RVs. CAREavan is a special project organized by the City of Union City, Kids Zone, local community and faith based organizations. It provides a safe place to park overnight to families and/or individuals who have been displaced and are tempo-rarily homeless. In turn, Union City homeless residents are welcomed at the Fremont Warming Center.

Mobile Hygiene UnitThe City has recently developed a proposal for County funding which would allow for the purchase of a mobile hygiene unit, which has two restrooms/showers and a washer and dryer for laundry. The intent is to secure this mobile unit and to deploy it within the next six months to locations throughout the city. The unit will rotate to different geo-graphic locations providing homeless individuals with access to showering and laundry facilities in order to mitigate inappropriate use of waterways. Waste and waste water will be disposed of at appropriate facilities located at the City’s corporation yard.

Inter-Agency CoordinationTo further efforts in collaborating with other agencies in tackling the homeless concerns, the City actively engages in Homeless Task Force meetings that include staff from Abode Services and various City departments.

3.2.5 Fremont Initiatives to Address Housing ShortageGiven the lack of affordable housing city-wide, it is essential to look for creative ways to increase the City’s low and very low income housing stock. The length of time and resources required to develop housing for our neediest residents necessitate looking at

alternatives to address the immediate needs of the home-less. The City is evaluating alternatives such as:• changes to the City’s zoning code to allow faith-based locations to provide overnight shelter to thehomeless, particularly in the winter months;

• the establishment of safe parking sites for home-less individuals and families living in vehicles and

RVs.


4 Direct DischargeTrash Control Program

4.1 PurposeDespite the myriad of support programs available, the lack of affordable housing in the region has caused a substantial increase in the unsheltered homeless population in the last several years. This has resulted in an increased risk of trash discharges from home-less encampments.

The City has responded to this challenge by implementing the Direct Discharge Trash Control Program as described in this section.

4.2 Staffing and ResourcesThe City of Fremont has committed the following staffing and resources to addressing the impacts of homeless encampments.

Policy GroupIn September 2017, a Homeless Policy Group was created consisting of department directors or other key City staff from each City department to develop policies and procedures to address increased homelessness and coordinate the City’s responses. This group meets approximately quarterly. The Homeless Assessment Subcommittee (a subset of participants) supports the Homeless Policy Group by conducting research and drafting policies and/or plans for the Policy Group’s consideration and implemen-tation. The subcommittee meets twice per month and includes staff from a majority of City departments.

Homeless Encampment CoordinatorIn July 2017, the City established a new position under the classification of Environmental Specialist to oversee the City’s Homeless Encampment response. This position is responsible for leading the City’s efforts to mitigate illegal dumping and homeless encampment debris and is also managing and resolving complex stormwater discharge and trash accumulation cases. Specific duties include:

• Developing, implementing, and managing the Direct Trash Discharge ControlProgram

• Managing contracted services to dismantle encampments, relocate homeless out ofor away from waterways, and remove any remaining residual trash from sites.

• Coordinating with appropriate City departments such as Park Maintenance, Policeand Code Enforcement to prevent encampments along waterways from being rees-tablished or entrenched.

• Initiating and managing pilot projects to control the debris that could potentiallyaccumulate near waterways.


• Assisting in the implementation of future programs or policies developed and ap-proved by the Homeless Policy Group.

• Coordinating cleanups with other impacted departments (i.e. Public Works, CodeEnforcement, etc.).

• Coordinating with other City departments and agencies that provide social servicesand housing to the homeless.

• Establishing MOU’s (Memorandum of Understanding) with other agencies such asthe Alameda County Water District, Union Pacific Railroad, Alameda County FloodControl, and neighboring cities to facilitate cleanups.

Homelessness Response TeamThe City’s Homelessness Response Team (HRT) consists of the Homeless Encampment Coordinator position described above, a Code Enforcement Officer, and a police officer when needed. This group is a field team that conducts the following activities:

• responds to complaints about homeless encampments

• provides outreach of services for homeless individuals and families

• tags debris

• supervises the abatements of encampments

• conducts ongoing assessments, and

• coordinates with other City Departments and public agencies as needed

Abatement ContractorThe City has engaged an encampment abatement contractor to remove large items, dismantle structures, and to clean up trash from homeless encampments. Cleanups are conducted every other week and are expected to continue on this schedule for the foreseeable future.

Republic ServicesThe City has a franchise agreement with Republic Services for the collection of all municipal solid waste, recycling and organic waste generated within the City. The City amended its agreement with Republic Services in late 2017, adding performance standards and pricing for debris removal from homeless encampment cleanups. Nearly every clean up conducted since fall 2016 has required a debris box due to the volume of material removed.

BudgetThe Homeless Encampment Coordinator, abatement contractor, and debris removal services are considered to be solid waste management expenses and accordingly are funded through solid waste collection fees. Budget appropriations for these are includ-ed in the Integrated Waste Management Division budget and approved by the Fremont City Council through the annual budget process.


Homeless Encampment Tracking ApplicationThe City has also appropriated resources for developing a system for tracking homeless encampment complaints, responses and abatement actions. The City’s Geographic Information System Division is currently developing a Homeless Encampment Tracking Application to help each Department track the homeless-related complaints received. This will allow for a centralized database and help organize and coordinate efforts among departments.

4.3 Identification of EncampmentsThis section describes the coordination and response process for reports of homeless encampment debris accumulation and threats to waterways. Other reports of homeless concerns are handled by the appropriate department. (e.g. mental health crises would be directed to the Mobile Evaluation Team).

4.3.1 CoordinationThe City’s Direct Discharge Trash Program requires coordination among a number of City departments as well as the Mobile Evaluation Team and Abode Services) as depicted in Figure 1.

Figure 1: HRT Coordination with Departments and Division


A multi-step approach, which includes the work of the HRT is triggered after the City takes in reports or complaints from the public, receives a referral from another agency, or observes an encampment during an assessment.

4.3.2 Encampment Response ProcessThe City’s procedures for addressing encampments that have been identified through complaints, referrals, and observations by City staff are described below. The Homeless Complaint Entry System (overview Figure 2; more detailed view Exhibit 2) ensures all Departments and Divisions forward any reports about homeless encampments and accumulation of debris to the Homeless Encampment Coordinator. The reports are currently captured in an Excel database but will ultimately be mapped in the Homeless Encampment Tracking Application.

Figure 2: Homeless Complaint Entry System


Complaint Referral ResponseFigure 3 depicts the typical phased response to a complaint or referral regarding an encampment.

Figure 3: Complaint/Referral Response

Weekly, the HRT evaluates scheduled locations, investigates complaints received from the public during the prior week, and follows upon any referrals received from oth-er agencies and departments. The objective is to determine the location and activity level of the homeless encampments, the number of camps and homeless persons, the proximity and risk to waterways, trash and debris accumulation levels, and identify any health and safety concerns.

Following investigations and assessments, enforcement is sometimes required to get compliance from property owners to remove accumulated debris. The HRT enforces compliance from property owners as follows:

Private property: A Notice to Abate Nuisance is mailed to the property owner to abate the violation and follow up inspections are conducted for compliance. This sometimes requires coordination with the Police Department to remove trespassers.

Other Public Agency property: Agency is notified via phone call or email to advise them to abate the violation. Follow up inspections are conducted for compliance. Depending upon the circumstances, the City may take the lead in abating these encampments.

City-Owned Property: the City has its own abatement program that is implemented by the HRT and follows the process described in Figure 3. Follow up inspections are con-ducted for compliance.

Outreach to Encampment ResidentsDuring the investigations, HRT is usually the first to make contact with the encampment residents. The HRT provides outreach with information about services available through Abode Services, the City’s Human Services Department, and the Family Resource Center.

Tagging and AbatementFollowing the investigations and outreach, the HRT fills out an Assessment and Evaluation Form (Exhibit 3) and determines a course of action based on field observations. Encampments are then tagged with a Notice to Abate Nuisance placard (Exhibit 4). Seven


days after tagging, the encampment is dismantled and trash is abated. Any person-al items held by the City follow the Policy on Unattended Property Located on Public Property or Right-of-Way. (Exhibit 5)

AssessmentsOnce the investigations and all prior phases have been completed, each encampment site location is added to an assessment list to be monitored, evaluated and inspect-ed to determine re-encampment activities and other conditions. The Assessment and Evaluation Form used during each inspection provides information about each site, and includes recommendations of deterrent methods needed for encampment prevention. Assessments are conducted by the HRT on a weekly inspection schedule. Based on the encampment site conditions, each site is placed on a re-inspection schedule ranging from monthly to annually.

Encampment PreventionThe Homeless Encampment Coordinator collaborates with the appropriate departments and provides prioritized, recommended prevention methods for each encampment location such as: fencing, no trespassing signs, vegetation trimming/removal for “line of sight”, and increased patrolling by the Police Department or Park Rangers. Other conditions such as graffiti, erosion/grading issues, and safety concerns are also com-municated to the appropriate department. The preventative measure implementation is tracked in the homeless encampment database.

4.4 Current Conditions

4.4.1 OverviewAs of January 2017, Fremont has documented 133 previously or currently active home-less encampments sites throughout the City. A map of these locations and watershed delineation is provided in Exhibit 6. Of these sites 62 are located on City property (Table 1) and 18 are priority sites that have either a direct or potential impact to the water-way or other water resources, such as percolation ponds that feed into creeks and thegroundwater. The remaining locations of encampment sites are on-land locations withthe impact of debris accumulation and potential for discharges to Fremont’s municipal

storm drain system. A summary of the sites is provided in the following table.

Signage, Isherwood Area


Table 1: Homeless Encampment Location Summary

Property OwnerPriority Waterway

Impact SitesOn Land Sites Total

City-Owned Property 7 55 62

Other Agency-Owned Property 7 31 38

Private Property 4 29 33

Total 18 115 133

4.4.2 Prioritized Areas of Direct Discharge and Effectiveness Evaluation

The HRT conducts site investigations weekly but the assessment schedule for individ-ual sites may vary from monthly to once per year depending upon the activity level and potential for debris accumulation and discharge. Abatements are conducted every other week. The City prioritizes its cleanups focusing on waterway impact sites and locations at risk for significant debris accumulation.

The City has identified the following 5 out of 18 waterway areas as the most vulnerable or heavily impacted by homeless encampments. (Map 1)

MAP 1: Overview Map of Most Impacted Areas


Map 2: Isherwood Area (A)

Isherwood AreaThe Isherwood area is a City-owned property that covers approximately 29 acres and has a creek that travels through about 12 acres. A stretch of less than one mile long known as Old Alameda Creek begins at Isherwood Way and Quarry Lakes Drive, and proceeds to Alameda Creek flood control channel. This undesignated park-like proper-ty is prone to establishment of entrenched encampments within the banks and bed of the creek because it provides vegetative cover and some seclusion.


Stivers LagoonStivers Lagoon is a 40 acre nature area that is part of the Laguna Creek Watershed. Ten creeks and drainage channels flow into Laguna Creek, drain-ing the hills and developed areas of Mission San Jose, Irvington, and the Industrial Districts. Mission and Morrison Creek join in the southern part of Lake Elizabeth to form Laguna Creek. Laguna Creek is diverted at Stivers Lagoon into a high flow (historic chan-nel) and low flow (flood control channel) drainage system (during storms). This park area is prone to the establishment of entrenched encampments with-in 300 feet of Laguna Creek.

Map 3: Stivers Lagoon (B)

Goats removing vegetation at Stivers Lagoon


Map 4: Niles Community Park (C)

Niles Community ParkNiles Community Park covers an area of approximately 64 acres. It has three ponds that hold rainwater and is used to recharge the groundwater and discharge to nearby Alameda Creek. This park is highly impacted with homeless encampments that are either on the bank of the ponds or within 300 feet of the banks.

Map 5: Alameda Creek (D)

Alameda CreekAlameda Creek stretches for approximately 13 miles. It begins in the Niles Canyon area of the Vargas Plateau, proceeding downstream through the northern part of Fremont, and opens up to the Coyote Hills Slough, which discharges to the San Francisco Bay.


Map 6: Granite Quarry Ponds (E)

Granite Quarry PondsFurther down to the west of Niles Community Park are the Granite Quarry Ponds located on the northeast and southwest of Paseo Padre Parkway. The property is owned by the Alameda County Water District (ACWD).


4.4.3 Cleanup Results of Prioritized AreasThe City tracks the location, date and weight of volume of trash and debris removed during each cleanup event. The table below summarizes the volume of material re-moved from the five priority sites since July 1, 2017.

Table 2: Areas with Highest Amount of Debris and Potential Waterway Impact

Areas with Highest Debris AccumulationDebris Removed

(Cubic Yards)Isherwood Area 90

Stivers Lagoon 80

Niles Park 90

Alameda Creek 40

Granite Quarry Ponds 30

Total Cubic Yards Removed 330

4.4.4 Re-Encampment Prevention and EnforcementCity staff have identified preventative measures to deter re-encampment which include vegetation trimming to provide a “line of sight”, physical barriers, and signage. An overview is provided in Table 3. Some measures will require additional funding to implement.

Table 3: Number of Encampment Sites in Need of Preventative Measures

Preventative Methods No. of Encampment SitesVegetation Trimming 15

Patrolling by Parks or Police 42

Fencing 10

Signage 15

No Methods Needed 51

Total 133


4.4.5 Re-Encampment Deterrents The Homeless Encampment Coordinator is partnering with other City departments to identify funding to implement the following deterrents:• Vegetation trimming and removal in prioritized parks and non-park, City-owned

property: Niles Community Park, Isherwood Area, Vallejo Mill Park, Central ParkLake Elizabeth, and Stivers Lagoon. (Estimated cost $250,000)

• Using goats to graze on a rotational basis to eliminate most of the undesirable veg-etation, which helps in opening up dense areas and creating “line of sight”. (Esti-mated annual cost $50,000 - $100,000)

• Expanding its Park Ranger program called “Community Engagement” to add pa-trolling, outreach, and enforcement additional parks. (Estimate in process)

• Erect fencing. ($700,000 estimated cost)

4.4.6 Other Site Management TechniquesIn some locations, it is not feasible to prevent homeless re-encampment and the City is piloting other site management techniques. In September 2017, Fremont started the Isherwood Pilot Project with the goal of moving encampment residents out of the Old Alameda Creek in order to protect the creek and its habitat. To manage the waste/debris disposal that typically accumulates at encampments and prevent discharge the City established weekly garbage collection services. Thus far, the Pilot Project has re-duced waste accumulation on site, particularly in the creek. The City established weekly collection at a second active encampment at an on-land location in December 2017 and is evaluating its effectiveness.

Isherwood Encampment, Before Isherwood Encampment, After

City of Fremont | Direct Discharge Trash Control Program 2222City of Fremont | 22

5 ASSESSMENTS, MONITORING & EVALUATION

The City will monitor and report results in its Annual Report. Below are descriptions of the performance indicators that, collectively, are intended to document the progress of the City’s programs. The City will also include relevant updates to the homeless condi-tion and support programs in its annual reporting.

5.1 Site Assessments and Effectiveness Evaluations It is the City’s intention to continue conducting weekly site assessments and every other week cleanups. Photo documentation of sites will be taken during investigations, tagging and assessments, and after cleanups. The Assessment and Evaluation Form (Exhibit 3) was created to help gather the data needed for measurement, reporting and evaluation.

The type of data gathered through the use of the Assessment and Evaluation Form includes:

• Site number, name, location, number of camps

• Property ownership, type of inspections

• Frequency of inspections

• Environmental site conditions, such as waterway impact, storm drain impact, trashand debris accumulation, and trash & debris sources

• Other site conditions, such as vegetation, fencing, signage, graffiti, erosion/grading,patrolling, safety and personnel, and miscellaneous concerns

The effectiveness evaluation will be created from the Assessment and Evaluation Form and will be quantified from the following performance indicators:

• Number and location of encampments

• Encampment counts (waterway and on-land)

• Number of encampments along waterways

• Number of on-land encampments

• Number of cleanups

• Quantity of trash and debris removed

• Number of “Notice to Abate Nuisance” notices sent

• Any prevention methods added or established

• Other site management changes

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When new or re-encamped sites are found during investigations or assessments, the findings are documented in an “encampment sites and hot spots” spreadsheet and in the future will be tracked in the new Homeless Encampment Tracking Application. From this information, the sites are scheduled for assessments on a monthly basis until the site is determined by the HRT to have no re-encampment activity. Once this happens, the site is scheduled for less frequent assessments.

5.2 Encampment Counts (Waterway and On-Land)Collecting detailed information about encampment locations and conditions will enable the City to evaluate its efforts to reduce encampments and the associated water quality impacts. Monitoring encampments in waterways and on-land will allow for an assess-ment of relative fluctuations in trends such as: encampment reductions, re-encamping, waterway impacts, and overall trash accumulation results. The City will also be evaluat-ing the effectiveness of other site management techniques.

5.2.1 Number of Encampments Along WaterwaysOn a monthly basis, the most active stretches of waterway encampment locations will be assessed by the HRT until the Homeless Coordinator determines that the locations are not re-encamped and there are no threats to the waterways. The HRT will compile information and use its established partnerships with other Departments and outside agencies to conduct cleanups, research alternative waterway protection methods and track encampment location activities.

5.2.2 Number of On-Land EncampmentsOn-land encampments are tracked and documented as the HRT conducts investiga-tions and assessments, and responds to calls reporting encampment locations. The goal of tracking on-land encampments is to record the amount of trash accumulation and the impact on the surrounding communities.


6 Conclusion

The City has taken a number of steps to implement a comprehensive management plan that attempts to address the underlying issue of homelessness long-term, while taking immediate action to mitigate the potential environmental and social impacts of encamp-ments in the near-term.

The reality is that encampments, and the underlying issue of homelessness, represent a multifaceted problem that requires more than just local resources to solve. As a City, the loss of redevelopment agencies in 2012 and the failure to replace the funds at the State level, has left Fremont without the capacity it once had to support the development of housing units required to solve the homeless crisis. Without a strong State partnership to provide direct funding to construct sufficient housing, encampments will persist re-gardless of the extensive work currently being undertaken.

While the City, County, District, and countless nonprofits are already working together to find answers locally, State support is critical to the ultimate solution. Through effec-tive collaboration and a renewed commitment to this problem, all involved parties can begin working towards solutions that protect neighborhoods, prevent pollution, protect our creeks, preserve safety, and provide viable housing and shelter alternatives for the homeless persons that live in unsafe and unsanitary conditions.

The City of Fremont is striving to solve the problem in a holistic manner. It recogniz-es common challenges and varying resource expertise. The City is working to facilitate a strong network of stakeholders that include a wide variety of government agencies, non-profits, and community partners. The City has invested significant resources to create a sustainable program to reduce the impacts of homeless encampments.

The City is employing a number of techniques to address this issue of homeless en-campments including supporting: affordable housing projects, installing physical deterrents to reduce encampments at sensitive locations, and enforcement to deter dumping. The City has increased its investment to expand the work that is vital to pro-tecting our waterways from the potential impacts of directly discharged trash.

Through the submission of this Plan, the City requests approval from the Executive Officer to claim a 15% offset credit toward its provision C.10. trash load percent reduction requirement in its FY 17-18 Annual Report and in sub-sequent years as long as such credit is allowed and this program is in effect.

2017 Homeless Census and Survey Report

Exhibit 1

Homeless Complaint Entry System

Exhibit 2

Assessment and Evaluation Form: Homeless Encampments and Hot Spots

Exhibit 3

Exhibit 4

Notice to Abate Nuisance Placard

Policy on Unattended Property Located on Public Property and Right-of-Way

Exhibit 5

Overview Map of Affected Receiving Waters and Associated Watersheds

Exhibit 6

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