Access Centers in Northern California

Homeless

Oct 7

Lessons for Lodi's Future Operations?

Modesto's Access Center Emergency Shelter (ACES): History and Current Crisis

Historical Development

Modesto's journey toward establishing its Access Center began in 2017 with a comprehensive community vision: "Through Dignity and Respect, Empowering People at Risk or Experiencing Homelessness Towards a Hopeful and Independent Life."^[3] The facility opened its doors on August 1, 2017, initially as an Outreach and Engagement Center before evolving into a full-service Access Center.^[1]

The current Access Center Emergency Shelter (ACES) was established in February 2019 through an innovative partnership between Stanislaus County, the City of Modesto, and the Salvation Army.^[7] Located at 320 Ninth Street (adjacent to the courthouse at 912 D Street), the facility represents a 182-bed low-barrier shelter that allows clients to bring their pets, partners, and possessions.^[9] This model was developed specifically to address the closure of the Modesto Outdoor Emergency Shelter (MOES), which had temporarily housed approximately 425 individuals.^[1]

Current Funding Crisis

Modesto's ACES faces an existential threat, with potential closure looming as early as spring 2026.^[2]^[5] The facility requires approximately $3.3 million annually to operate, but current funding will only sustain operations for about six months.^[8]^[12]

The funding breakdown reveals the severity of the crisis:^[2]

The county has already sent a lease termination letter to the Salvation Army, providing 180 days' notice, signaling the seriousness of the situation.^[2] The funding crisis stems primarily from reduced state allocations, particularly cuts to the Homeless Housing, Assistance and Prevention (HHAP) grant program.^[12]

Services and Operations

Despite funding challenges, ACES continues to provide comprehensive services:^[3]^[10]

Housing assessments and navigation
Centralized homelessness outreach
Court outreach programs
Mental health and substance abuse referrals
Case management services
Co-location with multiple service partners
Plans to expand with Social Security and DMV assistance

Lodi's Access Center: Construction and Operator Transition

Current Status and Construction

Lodi's permanent Access Center is actively under construction on Sacramento Street, with completion targeted for early 2026.^[24]^[30] The facility represents a significant investment in addressing homelessness, featuring:^[34]

15,000-square-foot multipurpose commissary
Administration offices
Capacity for up to 130 individual shelters (initially 50-70 beds due to county services integration)
6,335 square feet dedicated to San Joaquin County Health services
Dog park, walkways, and meditation gardens

Construction costs have increased by $2 million from initial estimates, though funding through the American Rescue Plan Act should cover the overrun.^[36]

Operator Selection Process

Lodi issued a new Request for Proposals (RFP) on October 2, 2025, with proposals due November 3, 2025.^[22]^[27] This follows a history of operator transitions:

Previous operators: Inner City Action managed the temporary facility initially^[23]
Current interim operator: Outreach Ministries International (12-month contract)^[21]
Future operator: Selection expected by January 7, 2026^[27]

The RFP seeks an operator to provide 24/7 management services with requirements including:^[27]

Initial fixed bed count of 60 for overnight services
Flex capacity to house up to 208 individuals
Day services allowing participants to remain onsite
Commercial kitchen and laundry operations
Experience with Homeless Management Information System (HMIS)
Five-year initial contract term with possible five-year extension

Partnership with San Joaquin County

A groundbreaking partnership between Lodi and San Joaquin County will integrate health services at the Access Center:^[25]^[30]^[32]

County-funded services: 16-bed Mental Health Quiet Ward, 4-bed Sobering Center, 4 Mental Health Respite beds
Main Street Transitional Housing: 40 units for transitioning individuals
Clinic services: Open to both Access Center clients and the general public
Funding structure: County services funded entirely by San Joaquin County/Medi-Cal reimbursements, not impacting city resources

Other Northern California Access Centers: Models and Approaches

San Francisco's Navigation Center Model

San Francisco pioneered the Navigation Center concept in 2015, establishing key principles that have influenced programs statewide:^[38]^[41]^[44]

Low-barrier approach: Allowing partners, pets, and possessions ("the three P's")
Small-scale settings: 75-bed capacity focused on rapid housing placement
Flexible schedules: 24-hour dining, no rigid curfews, come-and-go privileges
Initial success: 75% housing placement rate, later declining to 48% after program changes
Service integration: On-site benefits workers, case management, medical services

Sacramento's X Street Navigation Center

Sacramento's 100-bed facility, opened in September 2021, demonstrates a collaborative funding model:^[37]^[40]^[43]

Partnership between City of Sacramento, Sacramento Housing and Redevelopment Agency (SHRA), and Volunteers of America
Priority given to unsheltered adults in immediate vicinity
Closed referral system through 211 hotline
Storage for possessions and pet kennels on-site
Goal of rapid movement to permanent housing

Fresno's Multi-Agency Access Program (MAP) Points

Fresno has developed a distributed model with multiple access points throughout the county:^[39]^[42]^[45]

Integrated intake process connecting housing, substance abuse, and health services
MAP Points located in both urban and rural areas
Navigator-assisted screening and immediate service connections
Partnerships include Poverello House and Fresno County Department of Behavioral Health

Stockton's Navigation Center Development

Stockton recently opened the Carol and Henry Zeiter Navigation Center with unique features:^[73]^[76]

Three-story structure built from 42 shipping containers
Initial capacity for 68 beds, specifically dedicated to families
$8 million city investment
24-hour navigation services on ground floor
Focus on benefits enrollment and rapid rehousing

Merced County's Container-Based Model

Merced's $6.8 million Navigation Center showcases innovative construction:^[51]^[66]

15,000-square-foot facility built from modified shipping containers
75-bed capacity with pet-friendly policies
Full-service amenities including commercial kitchen and clinic
Good Neighbor Policy with community advisory committee
Operated by Merced County Rescue Mission

Smaller City Models

Redding is developing a Day Resource and Navigation Center featuring:^[74]

Outdoor spaces with hammocks and grassy areas
Bicycle repair area and coffee shop for job training
Amnesty lockers for storing prohibited items
Partnership with Good News Rescue Mission

Chico's Howard Slater Navigation Center (opening August 2025) represents a comprehensive approach:^[75]^[78]^[83]

4,000-square-foot facility as one-stop shop
$6.5 million state grant for operations
Animal kenneling facility
Integration with Torres Community Shelter

Best Practices Emerging Across Northern California

1. Low-Barrier Entry Standards

Successful centers consistently implement "Housing First" principles:^[58]^[61]^[70]

Accept partners, pets, and possessions
No sobriety requirements for entry
Flexible curfews or 24-hour access
Simple intake processes
Storage for belongings

2. Service Integration and Co-Location

The most effective centers centralize multiple services:^[39]^[45]^[84]

Medical and behavioral health services on-site
Benefits enrollment assistance
Employment services
Legal assistance
Transportation coordination

3. Rapid Housing Focus

Centers achieving better outcomes prioritize housing navigation:^[38]^[47]^[63]

Dedicated housing navigators
Direct connections to permanent supportive housing
Landlord engagement programs
Housing-focused case management

4. Community Integration Strategies

Successful programs actively manage neighborhood relations:^[41]^[66]^[77]

Good Neighbor Policies with clear expectations
Community advisory committees
Regular neighborhood cleanups
Transportation to reduce foot traffic
24/7 security and monitoring

5. Flexible Funding Models

Centers with sustainable operations diversify funding:^[57]^[60]

Combination of federal, state, and local sources
Medi-Cal/CalAIM billing for eligible services
Private philanthropy and donations
Performance-based contracts

Common Challenges and Problems

1. Funding Instability

The most critical challenge facing Access Centers is inconsistent, short-term funding:^[57]^[60]

Year-to-year uncertainty: 55% of providers report inconsistent annual funding
One-time grants: COVID-relief funds created temporary expansions difficult to sustain
Administrative burden: Complex reporting requirements for multiple funding streams
Restricted spending: Limits on administrative costs despite high compliance demands

2. Staffing Challenges

Centers face significant workforce issues:^[57]

Low wages driving high turnover
Mental and emotional burnout among staff
Difficulty recruiting experienced case managers
Limited funding for competitive salaries

3. Capacity vs. Demand Mismatch

Most centers report being overwhelmed:^[16]^[17]

Insufficient beds for demand
Turning away families due to lack of space
Limited ability to provide intensive services at scale

4. Neighborhood Opposition

Despite evidence showing minimal negative impacts, centers face:^[41]^[62]

NIMBY resistance to new locations
Concerns about property values and safety
Demands for extensive community engagement

5. Service Coordination Complexity

Operating effective centers requires managing:^[57]^[58]

Multiple funding streams with different requirements
Diverse partner organizations
Complex client needs requiring specialized services
Data sharing and HMIS compliance

Recommendations for Lodi Based on Regional Lessons

1. Operator Selection Priorities

Based on successful models elsewhere, Lodi should prioritize operators who:^[22]^[27]

Demonstrate collaborative capacity: Experience working with multiple service providers
Have proven housing outcomes: Track record of moving clients to permanent housing
Understand low-barrier operations: Experience with Housing First principles
Possess financial stability: Ability to manage cash flow during reimbursement delays

2. Leverage the County Partnership

Lodi's partnership with San Joaquin County offers unique advantages:^[25]^[30]^[32]

Maximize service integration: Ensure seamless coordination between city and county services
Pursue CalAIM funding: Work with county to bill Medi-Cal for eligible services
Share operational costs: Explore joint funding for security, maintenance, and utilities

3. Implement Proven Operational Models

Drawing from regional successes:^[38]^[47]^[63]

Adopt navigation-focused approach: Prioritize rapid housing placement over extended shelter stays
Create flexible entry systems: Use coordinated entry but maintain low barriers
Establish clear performance metrics: Track housing placements, not just bed nights

4. Build Community Support Proactively

Learning from others' experiences:^[41]^[66]^[77]

Form advisory committee early: Include neighbors, businesses, and service providers
Implement Good Neighbor Agreement: Clear expectations for facility management
Provide regular updates: Monthly reports on operations and outcomes
Invest in area improvements: Dedicate resources to neighborhood cleanliness and safety

5. Develop Sustainable Funding Strategy

To avoid Modesto's crisis:^[2]^[57]^[60]

Diversify funding sources: Don't rely solely on state HHAP grants
Build reserves: Plan for 6-12 months operating reserves
Pursue healthcare reimbursement: Maximize Medi-Cal billing opportunities
Engage private philanthropy: Develop donor relationships before opening

6. Plan for Scalability

Given demand projections:^[27]^[30]

Design flexible spaces: Enable expansion from 60 to 208 beds as planned
Phase service implementation: Start with core services, add others as capacity grows
Build modular partnerships: Structure agreements to add providers incrementally

7. Focus on Transition Success

Critical lessons from operator transitions:^[21]^[23]

Ensure overlap period: Plan 30-60 day transition with outgoing operator
Protect client continuity: Maintain case management relationships during transition
Document operations thoroughly: Require detailed procedures and protocols
Include performance incentives: Build outcomes-based compensation into contracts

Conclusion

As Lodi prepares to open its permanent Access Center in 2026, the experiences of other Northern California cities provide both cautionary tales and inspiring models. Modesto's current funding crisis underscores the critical importance of sustainable financing, while successful programs in San Francisco, Sacramento, and elsewhere demonstrate the potential impact of well-designed, low-barrier navigation centers.

The key to success lies in viewing the Access Center not merely as an emergency shelter, but as a comprehensive hub for ending homelessness through rapid rehousing, integrated services, and community partnership. With its innovative county partnership and purpose-built facility, Lodi has the opportunity to create a model program—provided it learns from both the successes and struggles of its regional peers.

References

LodiAccess Center

Don Bradford