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Workshop Staff Report Review the Town's Community Grant Program and Consider ModificationsDATE: TO: FROM: SUBJECT: MEETING DATE: 10/6/97 WORKSHOP COUNCIL AGENDA REPORT October 3, 1997 MAYOR AND TOWDT,GOUNCIL TOWN MANAGER REVIEW THE TOWNS COMMUNITY GRANT PROGRAM AND CONSIDER MODIFICATIONS RECOMMENDATION: Review the Town's Community Grant Program and consider modifications as presented on Page 5 of this report. BACKGROUND: Town Council makes final determinations on all Community Development Block Grant (CDBG) and Community Grant funding allocations through the adoption of the Town's Operating budget. During the FY 97/98 grant allocation process, questions arose regarding the program and determination of final grant allocations. One agency felt it was extremely underfunded compared to other grant recipients; another questioned the Arts Commission's preliminary recommendations. Questions were also raised about allocating grant funds to "new" agencies. (The Town's grant program has stabilized in recent years and grants are now disbursed, though not guaranteed, to the same 14 agencies.) This report reviews the Community Grant Program and the involvement of Committees, Commissions, Town Council and grant applicants in that program. It also discusses funding criteria, program improvements, trends in funding, agency services, and other pertinent issues and presents Council with a number of alternatives for modifying the program. DISCUSSION: The Process: The Community Grant Program was established in FY 1988/89 to facilitate granting CDBG and general funds (for human service and art, cultural, and educational programs) to non-profit community organizations. To assure that all applications receive due consideration and Town Council is provided with information necessary to make appropriate funding decisions, all grant applications are first reviewed by an Evaluation Committee, consisting of three Commissioners (Community Services Commissioners review all CDBG and human service applications, while Arts Commissioners review arts/cultural/educational applications). These Evaluation Committees determine proposal eligibility and make funding recommendations to the Community Services or Arts Commissions, which in turn, make funding recommendations to Town Council. As noted, Town Council makes the final determination on all funding allocations through the adoption of the Town's Operating Budget. Aside from recommending funding allocations to Town Council, the Community Services and Arts Commissions maintain communications with grant recipients throughout the year. Commissioners serve as liaisons to funded agencies, visiting each agency at least once each year. This process insures that Commissioners meet one-on-one with agency directors to obtain information about the agency and its ability to provide contracted services. Site visit reports discussing the liaison's findings on services and performance are presented at Commission meetings and filed with staff. This information is considered by Commissioners during the grant application review process. The Town Council depends upon the Community Services and Arts Commissions to carefully evaluate all Community Grant applications, develop an understanding of the services grant recipients perform and the effectiveness of those services in the community, and to formulate funding recommendations based on careful, objective consideration of grant requests in relation to funding criteria. PREPARED BY: Regina A. Falkner, Communi Reviewed by: ©1 Attorney Finance es Director v. Revised: 10/3/97 2:28 pm Reformatted: 10/23/95 PAGE 2 MAYOR AND TOWN COUNCIL SUBJECT: REVIEW THE TOWN'S COMMUNITY GRANT PROGRAM AND CONSIDER MODIFICATIONS October 3, 1997 The Community Services Department administers the Community Grant Program. A summary of the process is as Function CDBG Community Grant * Principal Applications Available January February Applicant Applications Due February March Applicant Applications Reviewed and Summaries Prepared by Staff (for distribution to Evaluation Committees) February March Staff Evaluation Committees Review Applications and Formulate Allocation Recommendations March March CSC/Arts Commissions Evaluation Committees Commissions Consider Allocation Recommendations Grant Applicants Make Presentations to Commissions Commissions Formulate Recommendations March April CSC/Arts Commissions Town Council Considers Allocation Recommendations Council Holds Public Hearing and Awards Funding (including brief presentations to Council by Applicants) April, May May Applicants Town Council *Community Grant: Human Services and Arts/Cultural/Educational Categories. The Community Services Department prepares and distributes applications, reviews and prepares application summaries and funding tables, coordinates meetings of the Evaluation Committees and Community Services and Arts Commissions, prepares sununary reports once recommendations are formulated, communicates with grant recipients, prepares Town Council reports summarizing Commission recommendations, ensures allocations are included in the Town Operating Budget, administers grant contracts, and assists in monitoring service performance of grant recipients. Just as program modifications have been implemented to simplify the grant process for applicants, staff is always working to simplify its own processes. A number of modifications are proposed on Page 3 of this report. Grant applications distributed to CDBG and Community Grant applicants are very similar. Both include background information and instruction; both require applicants to complete and submit eight pages of data. All grant applicants are given two opportunities between March and May to talk about their agencies, service programs, and other issues not addressed in the grant application: once before the Community Services or Arts Commissions and once before Town Council. Funding: CDBG funds allocated each year by Council to community agencies and Town housing and ADA (Americans with Disabilities) programs are initially obtained through the Town's participation in Santa Clara County's Urban County CDBG Program. Large cities with populations over 50,000 can apply directly to the federal government for CDBG funds. "Non -entitlement" cities with populations less than 50,000, including the Town of Los Gatos, must join forces with Santa Clara County (through the Urban County CDBG Program) and other non -entitlement jurisdictions to obtain funding. The County applies to the federal government for grant funds on the cities behalf; it becomes the recipient and primary administrator of the monies, while the Town and other non -entitlement jurisdictions become sub -grantees. The County of Santa Clara notifies the Town each November of the amount of its annual CDBG allocation. Since FY 89/90, the annual allocation has ranged from a high of $190,000 (Fiscal Years 94/95, 95/96, 96/97) to a low of $157,510 (FY 90/91). Approximately 20% of the total grant is allocated to non-profit agencies providing public services to seniors, teens, and the disabled (primarily low and very low income). Another $15,000 is automatically allocated to the Town for grant administration. The balance is disbursed among Town housing programs or used to make accessibility improvements around Town. Attachment 1 lists CDBG allocations authorized by Council to public service agencies since FY 92/93. PAGE 3 MAYOR AND TOWN COUNCIL SUBJECT: REVIEW THE TOWN'S COMMUNITY GRANT PROGRAM AND CONSIDER MODIFICATIONS October 3, 1997 Attachment 1 also lists Community Grants allocated by the Town since FY 92/93 to non-profit community agencies supporting human service, arts, cultural, and educational programs. Criteria for Funding: Evaluation criteria considered by the Evaluation Committees, Community Services and Arts Commissions, and Council when reviewing grant requests include, but are not limited to: community need for the program, past performance in providing established services and meeting Town requirements, the number of Los Gatos residents directly benefitting from services, cost per year per Los Gatos resident, number of low and very low income clients served, reasonable program costs, and percent of total program budget required from the Town. Funding priority is generally given to agencies serving the largest number of low and very low income clients and benefitting the greatest number of Los Gatos residents. The services provided by grant recipients must also fall into one of four categories: seed (start-up of new program), emergency, community program, or one-time special project. Attachment 2 provides an overview of funding criteria. Program Improvements: In order to simplify processes, the Community Services Department has or will implement the following program improvements: • Effective FY 97/98, the CDBG and community grant applications were modified to cover a two-year period (FY 97/98 and FY 98/99) and agencies were asked to predict program, project, service, and funding requirements and objectives through June 30, 1999. FY 97/98 grant recipients will only need to complete and submit a brief two -page supplemental application if they want to apply for FY 98/99 funding. The Department will continue this approach after 1999. • Effective FY 97/98, CDBG and community grant applications were reformatted to facilitate completion by applicants and review by Evaluation Committee members. • Effective FY 96/97, grant applications were made available to applicants on disk. • Agreement amendments are issued each year to grant recipients (instead of complete agreements) and contract requirements for agencies allocated $2,000 or less have been significantly reduced. • From year to year, the Community Services Department has kept grant applications similar in content and format, just as it has kept submission requirements and processes consistent. • Effective FY 98/99, the Department will create and issue a concise two -page grant application to non-profit agencies applying for $5,000 or less in grant funding, as long as those agencies have previously completed and submitted the comprehensive 8 page version. • Effective FY 98/99, the Department will simplify some of the documents it prepares for the Evaluation Committees and Community Services and Arts Commissions. For example, instead of preparing application summaries, staff will prepare a more meaningful one -page comparative summary similar to that included as Attachment 4. This document makes it easier to: 1) compare funding requests, program budgets, number of residents served, etc., and 2) determine whether or not grant requests comply with established funding criteria. In addition to these improvements, staff is always available to answer questions from community agencies regarding the grant process, application completion, contract and performance requirements, etc. We often facilitate communication among the various non-profit agencies when required and appropriate. We also provide technical assistance to agencies applying for grant funds from other agencies. Trends in Funding: Since FY 92/93, the Town has funded 27 different agencies through the Community Grant Program. In recent years, allocations have been disbursed among the same 14 agencies with two consequences: 1. Allocating grant funds to different agencies has stabilized in recent years. Previously, the grant allocation process was heated and emotional. Agencies competed openly for funds and allocation recommendations changed dramatically up until the final Operating Budget was adopted. The process was difficult for all involved. 2. This stability does not make it easy for new agencies to be funded. Given the limited resources, funds allocated to the Town's "traditional" agencies would have to be reduced to accommodate funding to new agencies, and there is usually reluctance to do this. Nonetheless, only four agencies have been denied funds since FY 96/97: PAGE 4 MAYOR AND TOWN COUNCIL SUBJECT: REVIEW THE TOWN'S COMMUNITY GRANT PROGRAM AND CONSIDER MODIFICATIONS October 3, 1997 FY Grant Applicant/Request Amount Justification for Not Funding 97/98 St. Luke's Parish Request: Freezer $1,000 (CDBG) $440 in Smythe European grant funds were authorized instead of CDBG funds. 97/98 LG Chamber Music Ensemble Request: Concert Support $1,000 (Comm Grnt) Agency request did not meet funding criteria (no volunteer base, no other source of funding) 96/97 Cupertino Community Services Request: Utility/Rental Assistance $7,000 (CDBG/CG) Total grant funds available were insufficient to accommodate request from new agency. 96/97 Eastfield Ming Quong Request: Nine -Passenger Van $20,000 (CDBG/CG) Total grant funds available were insufficient to accommodate request from new agency. : Community Grant Analysis of Program Services: Attachment 3 presents data on FY 97/98 funding allocations, including the number of Los Gatos clients served, cost per year per client, populations served, income levels of those populations, etc. During FY 97/98, funding to public and human service agencies ($104,550) will benefit approximately 3,418 unduplicated Los Gatos residents, while funding to arts agencies ($20,000) will benefit approximately 6,075 residents. Of the 14 different agencies allocated grant funds in FY 97/98, six provide services to seniors (particularly the frail elderly), six provide services to children and teens, and two provide services and enrichment accessible to all Town residents. Attachment 4 further reveals that: 1. funding to human/public service agencies supports basic life sustaining (food and shelter) and health programs, very much in keeping with Town goals and existing funding criteria. 2. Town funding represents a generally small percentage of each grant recipient's overall program budget (no more than 16.7%), which means that all funded agencies secure significant funding from other sources (another Town requirement). 3. Town funds are somewhat disproportionately spread among agencies in relationship to the number of Los Gatos clients served by those agencies: Live Oak Adult Day Services receives about 49.8% of the total CDBG public service allocation; Teen Counseling Center receives about 39.5% of the total Community Grant human service allocation, and Los Gatos Museum Association receives 62.1 % of the total Community Grant "arts" allocation (this grant actually represents in -kind services provided by the Town for building maintenance). A Place for Teens: A Place for Teens (aka The Outhouse) provides teens with a place to study, conduct research, use computers, listen to music, socialize and access recreational facilities and programs. Last year, A Place for Teens requested a $13,000 human service grant for educational speakers, computer software, equipment and furnishings, snack bar equipment, and to support its Teen Empowerment Employment Program (whereby teens are paid to staff the computer room and snack bar). A $1,000 grant was allocated. Similar funding requests were made in prior years and similar $1,000 allocations were awarded (FY 97/98, 96/97, 95/96, 94/95, 92/93: $1,000 annual allocations; FY 93/94, 91/92, 90/91, 89/90: no allocations). A Place for Teens has expressed concern about the discrepancy between its funding requests and final allocations, particularly in light of the thousands of dollars that are allocated each year to other human service agencies. It would very much like to receive larger grant allocations, believing that a stronger show of Town support is crucial to the success of its other fundraising efforts. Nonetheless, the Town provided significant financial support to The Outhouse during its construction: $75,000 was allocated for the building, use of land is provided at $1.00 per year, and site improvements and waiver of fees valued at $42,000 and $9,200, respectively, were authorized ($126,200 total). At the time, Council direction required that the Town only provide capital funds to the agency: it did not want to fund ongoing operational costs. Since FY 94/95, Council, in a good faith show of support to A Place for Teens, has deviated somewhat from this policy by allocating $1,000 grants. To further complicate matters, A Place for Teens must compete with other community agencies providing basic life sustaining (food and shelter) and health services to Town seniors (primarily low and very low income). PAGE 5 MAYOR AND TOWN COUNCIL SUBJECT: REVIEW THE TOWN'S COMMUNITY GRANT PROGRAM AND CONSIDER MODIFICATIONS October 3, 1997 Conclusion: The Community Grant Program is a valuable and effective program that benefits a significant number of Town residents, particularly seniors and children of low, very low and moderate income. It allows the Town, through partnerships with a variety of non-profit community agencies, to directly support important human, educational, cultural, and arts -oriented programs. It is also a positive reflection of the Town's commitment to the well-being of the community. To further refine the program, Council may want to consider: 1. waiving presentations made by grant applicants to the Community Services Commission, Arts Commission, or Council, if the applicant agency has received prior year funding, upheld its contractual obligations in terms of service performance and reporting requirements, and is well known to the Commissions and Council. Agencies interested in making presentations will still be given the opportunity. 2. reserving a percentage of the total Community Grant fund (human services and arts) or designating a specific dollar amount ($10,000 to $20,000) each year for new agencies who are eligible for funding and whose services conform with funding criteria. Limit grants to $5,000 per agency for the purchase of required materials or equipment and allow all agencies to apply for these funds, even those funded by the Town year after year. 3. revising Council guidance in regards to A Place for Teens so that grant funds can be allocated for operational costs. 4. modifying the liaison process between the Community Services Commission, Arts Commission, and grant recipients and authorizing the Evaluation Committee of the Community Services Commission to meet as a group with the different grant recipients (instead of individual "liaisons" meeting one-on-one with the community agencies). ENVIRONMENTAL ASSESSMENTS: This project is not a project defined under CEQA, and no further action is required. FISCAL IMPACT: This report discusses the Community Grant Program and provides alternatives to modifying program components. This report in no way impacts the Community Grant allocations authorized with the adoption of the final FY 97/98 Town Operating Budget. No allocation or budget adjustments are required at this time. Attachments: 1. CDBG/Community Grant Funding (FY 92/93 through FY 97/98) 2. Summary of Community Grant Funding/Evaluation Criteria 3. Comparative Summary of Agency/Program Services Distribution: Community Services Commission Arts Commission CSD30:a:trantpro.rpt Attachment 1 N W '0 W Q Q 0 O CO N 0 0 0 0 4,200 I 21,000 0 0 V N 0 00 O r 0 N r 5,650 I 25,200 ' O M 33,470 I 33.320 $ 109,870 11,520 4,030I 35,500 0 O 5,500I 0 CO ,- 00 O 0 Is. N 0 M 01 0 �? fA 1$ 178,080 $ 40,000 $ 218,080 1993-94 ADOPTED 7,550 p0 O (A CO d' 21,000 $ 41,750 ' 0 iD 6 11,820 1,480 5,700 27,690 32,800 $ 85,050 0 0 0 CO 2,000 20,250 8 VIN.N 0 0 r 0 M N 1 3500 2760 a 00 coM O f/3 I $ 122,550 $ 41,750 0 N 1994-95 ADOPTED 0 M Cr; 0 0 T 0 N if 19.250 N n co 00 O r 720 5,900 0 CO M 27,500 11,700 32.800 $ 83,570 6,000 2,000 1,000 300 750 0 0 r 2,480 V' 0) r $ 15,470 CH $ 99,040 $ 41,750 CA ~ co. CO r ADOPTED 11,530 I. co CI a[! oo-oO CA M N is.0 a N O 't O cr)r 1.6 810 OCD CO N 00 co O t0 C'? ti N O 0 CD coO 0 N 1 13,950 2,135 375 290 in N $ 25,450 1 Vi 0 or OD Q) f!} $ 41,750 co r a r w 0) g ADOPTED 00 V CO v to C` 3,520 v r CG $ 35,600 CCv co 0 NIi CO M 23,600 12,560 28.170 $ 68,870 O CO N 450 0) 380 , 1 430 $ 20,000 ' ' ' 'V. i9 j $ 88,870 $ 35,600 vo co CO 14. co co r ADOPTED O M CO 7,720 O co_O co O 10 CO $ 33,180 0 0 6,040 23,600 12,560 28.170 $ 71,370 0 0 et 500-I 12,430 ' 390 ' 0 CO r 0 O r 0 0 O N W 0 40,000 1 31,000 0 r 0 or m CH 1 $ 168,010 1 $ 33,180 0 1 G N W V Z CO SJSU Foundation/Health Place Catholic Charities/Ombudsman Program Food Bank ILive Oak Adult Day Care ICDBG FUNDS (218) d t m c E Place for Teens ITimpany Center Emergency Housing Consortium Transit Assist ISenior Coordinating Council ICSC Needs Assessment SJSU Foundation/Health Place S.C. Cnty Dept. of Social Services/Nutrition Prog. I Family Service Association Teen Counseling Center GENERAL FUND - HUMAN SERVICES Art/Education Art Docents Los Gatos Community Concert Assoc. Los Gatos Chamber Orchestra Los Gatos Museum Association L G Museum Assoc. Inventory Reimbursement Photographic Guild of Los Gatos San jose Symphony Forbes Mill Footbridge Mural Young Audiences ISilicon Valley Arts Fund Music in the Plaza Youth Science Institute GENERAL FUND - ART/EDUCATION C 7 v c (Billy Jones Railroad - Fees Q. 0 m Billy Jones Railroad - Soil Remediation IK-CAT Discretionary GENERAL FUND - CONTRIBUTIONS GENERAL FUND TOTAL ICDBG TOTAL GRAND TOTAL Community Grant: Arts, Cultural, Educational Arts Evaluation Committee Arts Commission Town Council (final authority) General funds (subject to availability) Same as CDBG Items 1, 3, and 4 (CDBG); Involve the largest number of local volunteers. Same as CDBG Same as CDBG Art appreciation and technique instruction Summer concerts Photographic competition Summer science camps and classes Museum building maintenance Community Grant: Human Services CSC Evaluation Committee Community Services Commission Town Council (final authority) General funds (subject to availability) Same as CDBG Items 1, 3, and 4 (CDBG); Provide basic life sustaining (food and shelter) and/or health services. Same as CDBG Same as CDBG Senior Services (obmudsman services for seniors placed in long-term care facilities, case assessment/management, day care, in - home nursing services, nutritional meals). Teen Services (counseling and referral, enrichment programs). V 1�L11�1 a lav vau ai.a i✓v .a.. �. ��-� Community Development Block Grant (CDBG) CSC Evaluation Committee Community Services Commission Town Council (final authority) Federal funds obtained through Town's participation in Santa Clara County's Urban County CDBG Program (subject to availability). 1) Incorporated as tax-exempt non-profit corporation or exist as another governmental entity; 2) Demonstrate the capability to receive and expend funds; 3) Assure compliance with applicable laws; 4) Demonstrate good faith efforts to secure funding from other sources. 1) Serve the highest number of very low/low income clients; 2) Eliminate slum and blight; 3) Address an urgent community need; 4) Benefit the greatest number of Los Gatos residents. 1) Community need for the program or service 2) Program duplication 3) Past performance in providing services and meeting Town requirements 4) Number of Los Gatos clients served vs. total clients served (unduplicated clients). 5) Cost per Los Gatos resident vs. cost per non-resident 6) Percent of total program budget requested from Town 7) Reasonable cost 1) Start-up of new programs; 2) One-time projects; 3) Emergency; 4) Community Programs. All meeting a significant community need or problem. Public services (relating to housing, senior programs) Home rehabilitation Affordable housing development Accessibility Improvements (Americans with Disabilities V V 1711V1 V 1,11 1 Function Application Review Process Funding Sources Applicant Requirements Funding Priorities bA el %" •y s 0 %r O�rU Funding Categories Eligible Activities (Examples) Attachment 3 4-Frail Elderly (Ombudsman Svcs (Long Term Care) 4-Seniors (60+) Nutritional Meals (On -Site & Delivered) 5-All Residents (Production of 12 Summer Concerts 5-Students Photographic Competition 5-Children/Teens Summer Science Camps/Classes ( 1 1 (1) Note: Cost per Year per Client/Percent of Program Budget calculations based on: A=FY 97/98 Executed Contract, B=FY 97/98 Funding Request. (2) Income: 1=Very Low, 2=Low, 3=Low and Very Low, 4=Very Low, Low, Moderate, 5=All Income Levels (3) Catholic Charities' program enables obmudsmen to investigate and resolve complaints made by, or on behalf of, elderly long-term care clients of residential care and skilled nursing facilities. (4) Family Service Association provides a variety of in -home support services designed to keep elderly clients independent and free from institutionalization. (5) Live Oak: While only 25 Los Gatos unduplicated clients are served, each client is served approximately 67 days out of the year (1680 total days of care provided). (6) A Place for Teens (The Outhouse) provides teens with a place to study, conduct research, use computers, listen to music, socialize, and access recreational facilities and programs. (7) The County of Santa Clara provides meals to Los Gatos seniors, both homebound and those participating in the Live Oak Adult Day Services Program. (8) SJSU/The Health Place provides in -home nursing services, blood pressure screening, consultations and other services that assist seniors with daily living and prevent hospitalization. (9) Second Harvest Food Bank distributes weekly supply of food to very low-income seniors, so an adequate diet can be maintained and health and independence sustained. (10) Teen Counseling Center provides long- and short-term counseling to teens and their families on a low fee basis (such services not provided elsewhere in Los Gatos middle and high schools). 4-Frail Elderly Assessment/Case Management 4-Frail Elderly Adult Day Care Services 5-Teens Improved Teen Center Operations 3-Frail Elderly In -Home Nursing Services 1-Seniors/Disabled Distribution of Groceries 4-Teens/Families Counseling and Referral (5-Children/Teens (ArtAppreciation/Instruction 5-Children/Teens Property/Public Liability Insurance 5-All Residents Museum Building Maintenance f � § _ Population I Program 1 Income (2) Served I I Category ) } Tv } ) j } Health/Food Enrichment Food/Shelter HealthANelfare Food HealthNVelfare Art/Education Music Art/Education Music/Culture ArUCulture jEducation Percent 1 o Program # 2 « m n * 0> in « w * m@ o * f $ 9 o * m o * P e @ R o * N" w * w f. « a < 5 * R o Total Program Budget $234,7241 / \ Q $214,2561 \ 0 kQ�w / U¢® 0 \ - $224,427 \ R __-_ (0 2 0 2 Z 0 2 69 Cost per Year per Client (2) 0 @ - G $41.87 o e© § CO c k> n r ®- N I,-0 q 0 8 - $136.75 '7 R@» Q& or— 0«§ (Ni a ICDBGICOMMUNITY GRANTS: FY 97/98 Summary of Program Services § _ § Los Gatos Clients Served u)(r) �\ 206 n \ 04 k 8 ,_ 1 700 k.- CO- k en ) ƒ ) ƒ 23.3%l @ g » a 9 ) 1.4% 1 33.1%1 * R 2 @ R 2 39.5%I * 0 B * R@ ~ * G 1 8.4°% 0 o ^ « o ® 0 o 0 FY 97/98 r § 0 Funding C / 64 K © G /k r Q ei 2 © ° / Cmm Grant Funding( 8 2 N 8 RR\ G/& 8 / K $71.370 0In7»n00 8,yr 80 24 G 0 0 7k 0 S _ } y\ 7$7$/7k§ <<<<mm . 0 @ ) } ■ « 2) 0 «-§ \ cn -©cci \% < • °» ƒ k 0 < > @ t 2 a- k < ] k ))o\ co d \ j 3 £ 0 ƒ 2 k \ . § CO - $ es a 7§ ) a) 0 5 § G • ). U 2 a e , < • - ttt °-/ ] - Q ; c < c o a a % C § B§ 0 ) \ o ' ■ \ o ] • ƒ ƒ k/ ] -a- § z ± _ � & e @ Q *. k § 5 ƒ 4 ® I- CSD30A:1commgmt.sum / k 2