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CaliforniaResearchBureauCaliforniaStateLibrarySoberLivingHomesinCalifornia:OptionsforStateandLocalRegulationOctober2016900NStreet,Suite300,Sacramento,CA95814www.
library.
ca.
gov/crbCaliforniaResearchBureau|CaliforniaStateLibraryTABLEOFCONTENTSEXECUTIVESUMMARY1INTRODUCTION2DIMENSIONSOFSOBERLIVINGINCALIFORNIA4ESTIMATINGTHESTATEWIDEELIGIBILITYGROUPANDTOTALCAPACITY4REFERRALSANDRELATIONSHIPS5PRIVATEANDPUBLICCERTIFICATION6OVERVIEWOFSTATEANDFEDERALLAWSAFFECTINGSOBERLIVINGHOMES8FEDERALLAWSANDREGULATION8STATELAW8LOCALEFFORTSTOREGULATESOBERLIVINGHOMES8REGULATORYEFFORTSINOTHERSTATES9RECENTLEGALCHALLENGESTOSOBERLIVINGHOMEREGULATION9POLICYOPTIONS11STATEWIDELICENSINGORRE-CLASSIFICATIONOFSOMESOBERLIVINGHOMES11FAIRSHAREANDGEOGRAPHICDISTRIBUTION11STATEWIDECERTIFICATION12APPENDIX:RECENTPROPOSEDLEGISLATION14ENDNOTES17SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulationAuthorsPrimaryAuthors:JasonMacCannell,KellieJeanHogueResearchandWritingAssistance:ChrisBerger,CarleyHerronRequestedbyOfficesofSenatorPatriciaBatesandAssemblymemberWilliamBroughAcknowledgementsTheauthorswishtothanktheagenciesandorganizationsthatgavetheirtimetoprovideinformationforthisreport:AlcoholResearchGroup,CaliforniaDepartmentofHealthCareServices,theCenterforCommunityResearchatDePaulUniversity,CLEWAssociates/PreventionbyDesign,NationalAllianceforRecoveryResidences,PublicHealthInstituteandTheSoberLivingNetwork.
RecommendedCitation:MacCannell,JasonandHogue,KellieJean.
"SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation.
"CaliforniaResearchBureau,Sept.
2016.
ISBN1-58703-273-2CaliforniaResearchBureau|CaliforniaStateLibrary1ExecutiveSummarySoberlivingisaneffectivepartofasuccessfultreatmentprogramformanypeopleinrecoveryfromsubstanceabuse.
Soberlivinghomes,whichthelawgenerallytreatsasresidencesratherthantreatmentfacilities,areintegraltoCalifornia'ssystemofsubstanceabuseresources.
Statelawsandlicensingrequirementsgoverningtreatmentandcarefacilitiesdonotapplytosoberlivinghomes,whichareprotectedunderstateandfederallawasresidencesofpeoplewithdisabilities.
Forthisreason,nostateagencyformallyregulatessoberlivinghomes.
Stateandlocalgovernmentshaveconsideredwaystoregulatesoberlivinghomes,oftenarguingthatthesehomeshavebeguntoactmorelikebusinesses,impingingontheresidentialcharacteranduseofareaswheretheyareconcentratedtogetherorclusteredwithlicensedrecoveryfacilities.
RecentordinancesinNewportBeachandCostaMesahavefacedmajorlegalchallenges,whileaproposedframeworkforthecityofLosAngeleshasfailedtobecomelaw.
OtherCalifornialocalgovernmentsthathaverecentlyexplored,advancedorenactedregulationofsoberlivinghomesincludeSanClemente(2016),LagunaNiguel(2016),SanJuanCapistrano(2016),LagunaHills(2015),SanJose(2015),Encinitas(2015),SanBernardinoCounty(2014)andRedlands(2005).
Legislativeattemptstoregulatesoberlivinghomeshavebeenunsuccessful.
Outof25billsaffectingsoberlivinghomesintroducedsincethe1998-99legislativesession,onlythreereachedtheGovernor'sdesk—andthosewerevetoed.
CommunityconcernsaroundsoberlivinghomesarenotuniquetoCalifornia.
Recently,lawscreatingstatewidevoluntarycertificationoraccreditationofsoberlivinghomeshavebeenintroducedinPennsylvania(2016)andpassedinMassachusetts(2014).
InSt.
Paul,Minnesota,anordinancepassedin2008requiresa330-footbufferbetweensoberlivinghomesandplacesrestrictionsonoccupancyandparking,similartobuffersandotherrestrictionsproposedorenactedinCaliforniacities.
TheseexamplesshowthatCalifornia'sissuesarefarfromuniqueandthatthepolicysolutionsbeingpursuedelsewherereflectmanyofthesameoptionsavailabletoCaliforniaanditslocalgovernments.
Inadditiontoreviewingstateandfederallawsaffectingsoberlivinghomes,localeffortstoregulatethem,regulatoryeffortsinotherstatesandrecentlegalchallengestoregulation,thisreportdiscussesotherdimensionsofsoberlivinginCalifornia.
Theseinclude:Thestatewideeligiblepopulationandbedcapacity(preliminaryestimates);Referralsandrelationshipsbetweentreatmentfacilitiesandsoberlivinghomes;Privateandpubliccertificationofsoberlivinghomes;Recentproposedlegislation;Policyoptions.
SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation2IntroductionTheintegrationofhousingforpeoplewithspecialneedsintoCaliforniaresidentialcommunitiesisanongoingchallenge.
Intheareaofrecoveryfromsubstanceabuse,"socialmodel"programs–programswhichemphasizeself-helpandsocialreinforcementratherthantreatmentundera"medicalmodel"–havegainedgroundoverthepastfewdecades.
1Peopleinrecoverynowgenerallyseektoliveinplacesthatresembleordinaryhouseholdsinresidentialneighborhoodsratherthanisolatedfacilitieslikethefarmsandstatehospitalsthatwereusedtotreatalcoholicsandaddictsinthemid-20thcentury.
Citizensandlocalcivicleadersgenerallyexpresssupport2foreffortstohelpsubstanceabusersrecover,aswellastheconceptofintegratingpeoplewithspecialneedsasequalmembersoftheircommunities.
Inpractice,however,theconcentrationofsoberlivinghomesincertainareas,theirassociationwithlicensedfacilitiesandtheperceptionthattheyarerunprimarilyforprofithaveledtolocaleffortstoregulateorotherwiselimittheirestablishment.
Alcoholicsandaddicts–aslongastheyaretryingtorecoverandhavenotbeenconvictedofmajordrugcrimes–constituteaprotectedclassofdisabledpersonsunderstateandfederallaw.
3Advocatesforthespecializedhousingandresidentialprogramsthatservethispopulationarguethatanirrationaland,infact,illegalbiasleadsmanytoprefernottohavesuchfacilitiesintheirownneighborhoods.
Ontheotherhand,localgovernmentshavebroughtforwardthecomplaintthatrecoveryprogramsaredevelopingintoaprivateindustrythatthreatenstheresidentialcharacterofestablishedneighborhoods.
Localofficialshavewarnedofa"RehabRiviera"ofexpensiverecoveryfacilitiesdisruptingordisplacingfamilyneighborhoods,particularlyinSouthernCaliforniacoastalcommunities.
4Thisreportfocusesononeparticulartypeofhousingforpersonsinrecovery:thesoberlivinghome.
In2002,theCaliforniaResearchBureaupublished"ResidentialCareFacilitiesintheNeighborhood:Federal,State,andLocalRequirements,"5astudyfocusedprimarilyonstate-licensedfacilitiesacrossmultipleareasofneed,includingbutnotlimitedtorecoveryfromsubstanceabuse.
Whilethisreportwillprovidesomeupdatedinformationonthelegalandregulatoryframeworksweaddressedin2002thatapplytobothlicensedandunlicensedfacilities,itsprimarypurposeistoaddresstheunlicensedsoberlivinghomeasbothanintegralpartofCalifornia'ssystemofsubstanceabuseresourcesandadriverofongoingcontroversy.
Asoberlivinghomeisaresidenceforpeopleinrecoveryfromsubstanceabuse.
Itmayserveasacrucial,orevenindispensable,supportforindividualsundergoingtreatmentbutitdoesnotprovidetreatmentorcare,whethermedicalorpersonal(asinanassistedlivingfacility).
Thestatelawsandlicensingrequirementsthatgoverntreatmentandcarefacilitiesdonotcurrentlyincludesoberlivinghomes.
Thismeansthatthestatedoesnotkeepanylistofregisteredsoberlivinghomes,conductinspectionsofsoberlivinghomesorperformanyoftheotheractivitiesassociatedwithlicensingfacilities.
Asoberlivinghomemaybecompletelyself-governedorhaveformalon-sitemanagement,butinthelattercase,themanagers'dutiesrelatetotheadministrationofthehouseratherthanthetenantsortheirrecovery(asin"casemanagement").
Thetenantsofasoberlivinghomepayrentandabidebyhouserules,whichalwaysincludemaintenanceofsobrietyandparticipationinaself-helpprogram.
6Multiplestudieshaveshowntheeffectivenessofthiskindofenvironmentasasupportforpeopletransitioningoutofdrugoralcoholtreatment.
7Theeffectivenessofsoberlivingasonecomponentofaperson'ssuccessfulrecoveryprogramisnotcontroversial.
Theconcernunderlyingthisstudyisbetterframedaswhetherthesehomes–whichareheavilyCaliforniaResearchBureau|CaliforniaStateLibrary3protectedunderfederalandstatelawasdisabledpeople'sresidences–haveinsomecasesmovedawayfromtheirintentandevolvedintosomethingelse,andifso,whattheappropriatepolicyresponsesmightbe.
Thesheeropulenceofcertainfacilitieshasledsometoquestiontheirfocusonrecovery.
AlistingofsoberlivinghomesintheWestLosAngelesareashowsmonthlyrentsofupto$10,000andamenitiesthatmayseemmoreappropriatetoaluxuriousresortthananenvironmentofrecovery,suchasfinedining,in-roomspatreatmentsandhorsebackriding.
8Thesocialmodelcallsfortheenvironmentofrecoverytobeclose,bothphysicallyandstructurally,tothetypicalornormativemodelofresidentiallifeinthesurroundingcommunity,andthelegalprotectionsthatsurroundsoberlivinghomesprotectthemasresidences.
Inthiscontextitisunderstandablewhyneighborsandcivicleaderswhootherwisesupportrecoveryandthesocialmodelmightquestionfacilitieswhoseotherattractionsseemtooutweightheirpromiseofacleanandsoberenvironment.
Ontheotherhand,thereisnolegalortherapeuticreasonwhyasoberlivinghomeshouldbemoreausterethanthemarketwillapparentlybear.
Noteverylocalcontroversyaroundsoberlivinghomesorsimilarfacilitieshasbeenofthe"RehabRiviera"variety.
Landlordsinlessaffluentareashaveallegedlyoffereddangerous,overcrowdedorotherwiseillegalhousingunderthepretextofsoberlivingorsimilaruses.
NewYorkCityrecentlyevacuatedsomeofitsunregulated"three-quarterhomes"fortheaddicted,homelessandmentallyillafterfindingthatthey"crammeduptoeightpeopleinaroomandoftenhadrodentsandblockedfireexits.
"9Whiletherehavebeennohigh-profilecasesofthisnatureinCaliforniainrecentyears,wefoundseveralhistoricalexamples.
In2000,TheLosAngelesTimesreported"homessoovercrowdedthatresidentswerelivingintheircars"inSanJose.
10A1992columninthesamenewspapercited,invariouspartsofSouthernCalifornia,"asmanyas55recoveringdrugaddictsandalcoholics…livinginasinglehome,"menwho"surrendertheirwelfarecheckstosleeponplywoodpalletsinbarecubicleswithexposedwiring"andwomenwho"seekshelterinthehomeofatherapistwhohasbeenaccusedofdemandingsexualfavorsfromfemaletenants.
"11Whilesuchdismalsituationsareafarcryfromthe"RehabRiviera"controversy,inbothcasesthereisanunderlyingsuspicionthattheprofitmotiveoftheoperatorofthehousehaseclipseditspurposeasaplacetohelppeoplerecoverfromsubstanceabuseandreintegrateintosociety.
Furthermore,regardlessofhowluxuriousorspartanitis,asoberlivinghomeinaresidentialneighborhoodtendstobedistinguishablefromatraditionalhousehold,evenwhilethelawdoesnotregarditassuch,andinmanycasesdespitethebesteffortsofitsmanagementandtenants.
Ataminimum,theresidentstendtobemuchmoretransientthanatypicalfamilymember;theirgroupdemographicsarevisiblydifferentfromtheexpecteddemographicsofafamilyunit;theirday-to-dayschedulesoftendifferfromthetypicalscheduleofamiddle-orworking-classfamily;andtheysometimesengageinvisiblegroupactivitiesrelatedtotheirrecoverythattraditionalfamilieswouldnotbelikelytoengagein.
Beyondthis,neighborsofsomesoberlivinghomeshavecomplainedofhigherlevelsofnoise,secondhandsmoke,foottraffic,streetparkingandothernuisancesthattheyattributetothepresenceofthehome.
12Whetherornotthelatterclaimsarevalidandfair,wecanreasonablyexpectthevisibledifferencesbetweensoberlivingandotherhomesinsettled,single-familyneighborhoodstocontinuetoattractcuriosityandattention,ifnotsuspicionandcomplaint,fromneighborsinmoreconventionalsituations.
Whensoberlivinghomesandrelatedtreatmentfacilitiesbecomeconcentratedinonearea,theSoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation4differencescanbecomeevenmorevisibleandraiseconcernsaboutthecharacteroftheneighborhood.
Yettherearealsomanyexamplesofwell-runsoberlivinghomesco-existingpeacefullyandevenamicablywiththeirneighborsinresidentialareas.
13Overall,itseemsthatcitiesandneighborsontheonehand,andpersonsinrecoveryontheother,haveamutualinterestinsuccessfullyintegratingsoberlivinghomesaspartofthefabricofthecommunity.
Whileneighborhoodshaveaninterestinmaintainingtheirresidentialcharacterandqualityoflife,thesocialmodelofrecoveryalsodependsonsoberlivinghomesexistinginsuchneighborhoodswithoutdisruptingthem.
Asonesoberlivingadvocacyorganizationputsit,"Homeswhichcauseproblemsforneighborsarenotprovidingtheirresidentswiththelivingskillsthatareanintegralpartofthesoberlivingexperience.
"14Whetherrecoveryfacilitiesmultiplyanddisplaceneighborhoodsorgovernmentsregulatesoberlivinghomessuchthattheybecomeconcentratedinonlyafewareas,ashasbeenshowntooccurwithsexoffenderhousingrestrictions15–bothhaveasimilarendresult.
Inotherwords,aregimethatiseitheroverlyrestrictiveoroverlypermissiveislikelytoleadtogreatersegregationandconcentrationofrecoveryfacilities,anenvironmentthatisnotconducivetorecoveryandreintegrationintosociety.
Incontrast,aconstructiveregulatoryframeworkforsoberlivinghomescouldconceivablybebuiltaroundtherecoveryandwidercommunities'mutualinterestinsuccessfulintegration.
DimensionsofSoberLivinginCaliforniaEstimatingthestatewideeligibilitygroupandtotalcapacityThenumberofsoberlivinghomes,thetotalcapacityofthesehomesandtheoverallneedforsoberlivingcapacityaredifficulttodetermine.
Ingeneral,thereisalackofenumerateddataoneitherthehomesthemselvesorthepopulationstheyserve.
Intheinterestsofdefiningtheoverallscopeoftheissue,theCaliforniaResearchBureauhasdevelopedapreliminarysetofestimatesindicatingthatthereareatleast12,000soberlivingbedsinthestatetoserveaneligiblepopulationofbetween25,000and35,000individuals.
Theassumptionsandcalculationusedtodeveloptheseestimatesareasfollows.
Soberlivinghomesingeneralrequirethattenantsparticipateactivelyinarecoveryself-helpfellowship.
Thelargestofthese,AlcoholicsAnonymous,reportsanationalactivemembershipof1.
28millioninJanuary2015.
16IfCaliforniahasashareofthismembershipcommensuratewithitsshareofthenationalpopulation,thenumberofAlcoholicsAnonymousmembersherewouldbearound156,000.
Apublishedestimatefrom2008showedthat85percentofthetotalself-helprecoveryfellowshippopulationwasinAlcoholicsAnonymous,13percentinNarcoticsAnonymousand2percentinothergroups.
17ApplyingthesefigurestothecurrentnationalmembershipofAlcoholicsAnonymous,andassumingCalifornia'sshareisproportionaltoitsshareofthenationalpopulation,weestimatethatthereareabout183,500recoveryself-helpgroupmemberslivinginCalifornia.
Sincetenantsgenerallystayinsoberlivinghomestransitionallyratherthanpermanently,wecanfurtherlimitourestimateoftheeligibilitygrouptothoseintheearlystagesofrecovery.
In2015,NarcoticsAnonymousreportedthat8percentofitsmemberswereintheirfirstyearofsobrietyand27percentwereinyearstwothroughfive.
18Assumingthatthedistributionacrossthelatteryearsiseven,meaningabout6.
75percentofthefellowshipisineachofyearstwothroughfive,wecaninferfromthisdatathataround14.
75percentofactivemembersareintheirfirstorsecondyearsofsobriety("beingclean"inNarcoticsAnonymousterminology.
)CaliforniaResearchBureau|CaliforniaStateLibrary5Furtherassumingthatthisdistributionpatternissimilaracrossallself-helpfellowships,wecanapplythispercentagetoourestimateofthetotalrecoveryself-helpgrouppopulationforanestimateof27,000individualsinCaliforniabeingcrediblecandidatesfortenancyinasoberlivinghome.
Usingthesamemethodandthepreviousyear'sdatafromNarcoticsAnonymous,wefoundafigureof33,000;thuswefeelitisreasonabletoexpressourfinalestimateasarangefrom25,000to35,000.
SinceneitherAlcoholicsAnonymousnorNarcoticsAnonymouspublishtheirsurveymethodology,andwehavehadtoextrapolatetheestimatesfromthisdata,thisfigureshouldbeconsideredmoreasamarkeragainstwhichtomeasuretheinventoryandexistingcapacityofsoberlivinghomes.
Unfortunately,itisevenmoredifficulttoestimatethetotalnumberofsoberlivinghomes.
Thisisbecausethereisnoexistingrequirementforsoberlivinghomestoidentifythemselvesassuchinanyofficialcapacity,unlesstheyareparticipatinginprogramsbeyondtheminimumlegalrequirementsforsuchahometoexist(see"Privateandpubliccertification"below.
)About750homesaremembersofoneofthetwomajorassociationsthatorganizeandpromotesoberlivinginCalifornia19–TheSoberLivingNetworkandtheCaliforniaConsortiumofAddictionProgramsandProfessionals–buttheseorganizationsdonotcaptureeverysoberlivinghomeorequivalentestablishmentinthestate.
Furthermore,wedonotknowhowmanypeoplecanliveineachofthe750homes.
Becausetheyareunlicensed,theonlyrestrictionsonoccupancythatcanbeappliedtothemarerestrictionsonallresidentialunitsofthesametype(single-family,duplex,multi-familyorothertypesofhousingorlodgingasdefinedinstateandlocallaw).
AcountofsoberlivinghomesandbedsinCostaMesafoundanaveragedensityof5.
6bedsperhome.
20Ifthisistypicalforthe750associatedhomesstatewide,thereareabout4,200bedswithinbothnetworks.
(However,thisnumbermayreflectthecity'sinterpretationofazoninglawthatallowsupto6personsperunitwithoutausepermit,regardlessoftheunit'ssize,asmuchasormorethanitreflectstheaverageoccupancyofsoberlivinghomesthroughoutthestate.
)Thisstilltellsuslittleabouttotalstatewidecapacity,givenourlackofknowledgeoftheassociations'ratesofcapture,butitdoessuggestaconsiderablegapbetweentheavailabilityofspaceinsoberlivinghomesandthesizeoftheeligibilitygroup,assumingtheassociationscaptureatleastasignificantminorityofthetotalcapacity.
Anationalonlinedirectoryofrecoveryresourceslistsatotalof2,155soberlivinghomesinCalifornia,alistthatoverlapsconsiderably,perhapscompletely,withthetwoassociationmembershiplists.
21Atanaverageof5.
6bedsperhomethelistwouldimplyastatewideinventoryofabout12,000beds,buttheremaystillbemanymorehomesthatdonotappearinthedirectory.
Onlyafractionoftheeligibilitygroupwillactuallychoosesoberlivinghomes.
Someenterrecoveryfromhomeenvironmentsthatareadequatelysupportiveoncetheirsubstanceabuseisknownandtreated,whileothersfindhousingindifferentprogrammaticformats,suchastransitionalorpermanentsupportivehousingforhomelesspersons.
However,allevidencesuggestsanunmetandgrowingdemandforbedsinsoberlivinghomes.
22Itisalsoworthconsideringthatthemoreluxurioussoberlivinghomesmaybeattractingalargenumberoftenantsfromoutsidethestate.
ReferralsandrelationshipsTenantsoftenfindtheirwaytosoberlivinghomesthroughreferralsfromthecriminaljusticesystemorprofessionalstheyencounterduringtreatment.
InastudyofsoberlivinghomesinSacramentoCounty,44percentofreferralswereby"self,familyandfriends"while29percentwerethroughthecriminaljusticesystemand15percentwerefrominpatienttreatment.
23SincesoberlivinghomescannotSoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation6providetreatment,referralrelationshipsbetweentreatmentfacilitiesandsoberlivinghomesthatexistinclosephysicalandfinancialproximitycouldbringintoquestionthestatusofthehomeandthelicensedfacilityaslegalentitiesindependentofeachother.
WehavefoundnoexampletodateofproceedingsagainstaCaliforniasoberlivinghomeusingthislegalframework,buttherehavebeensuchproceedingsagainstthree-quarterhomeoperatorsinNewYork.
24Criminal-justicereferralstosoberlivinghomesarepartofabroadermovementtowarddealingwithalcoholismandaddictioninthecommunityratherthanprisonsorjails.
Thehistoryofthismovementisbeyondthescopeofthisreport,butwemightquicklynoteitspersistenceandbroadimpactsinCalifornia,beginningwiththetransitionfrom"drunktanks"todetoxificationcentersinthe1960s25andcontinuingwiththeSubstanceAbuseandCrimePreventionAct(Proposition36)in2000,whichcalledfordrugoffenderstoreceivetreatmentratherthanjailsentences,aswellastheongoingpenalrealignmentwithitsemphasisonrehabilitationincommunitysettings.
Thismovementhasreceivedbroadsupport,26notonlybecauseitseemslikeamorehumaneapproachthancustodialsentencingforsubstanceabuse,butalsobecauseitpromisesbothcostsavingsandareductioninrecidivism.
Ontheotherhand,theplacementofdrugandalcoholoffendersinthecommunitymayincreasedemandforsoberlivinghomes27and,insomecases,raiseneighborhoodconcernsaroundtheirpresence.
28Californiansresearchingsoberlivingresourcesontheirown–the"self,familyandfriends"whomadeupthelargestgroupofreferrersintheSacramentostudy–arelikelytocomeacrossinformationandresourcesofferedbyoneoftwomajorassociations:TheSoberLivingNetwork,organizingabout500homesintheSouthernCaliforniaregionundersixcounty-levelcoalitionsandtheCaliforniaConsortiumofAddictionProgramsandProfessionals,registering255homesthroughoutthestate.
WithreferencetotheConsortium,thestateDepartmentofHealthCareServices(DHCS)statesonitswebsite:"ItisimportanttonotethatwhilesoberlivingenvironmentsoralcoholanddrugfreehousingarenotrequiredtobelicensedbyDHCS,operatorsarerequiredtocomplyonlywithlocalzoningandoccupancyordinances.
FormoreinformationpleasecontacttheCaliforniaConsortiumofAddictionProgramsandProfessionals…"29Bothsoberlivinghomeassociationsrequirecertainstandardsformembership.
Similarly,somecountygovernmentshavesetrequirementsthatsoberlivinghomesmustmeetbeforethecourts,probationdepartmentorotherlocalagencieswillreferoffendersorsocial-serviceclientstothem.
Inthenextsection,wewillexaminethecertificationrequirementsofthesepublicandprivateagenciesasbothafinalconsiderationinouranalysisofthedimensionsofsoberlivingandaspringboardforfurtherdiscussionofpossibleregulatorymeasures.
PrivateandpubliccertificationBothofthemajorsoberlivinghomeassociationshaveextensivemembershiprequirementsandoffertrainingandotherresourcestothestaffandoperatorsofsoberlivinghomes.
TheSoberLivingNetworkhasnetwork-wideaswellaslocalpoliciesacrossthesixcounty-levelcoalitionsitcomprises;thenetwork-widerequirementsformembershipincludehomeinspectionsforhealthandsafety,trainingforhousemanagers,liabilityinsurance(whichtheNetworkoffersmembersatadiscount)andadherencetoacodeofstandards.
30Thelattertouchesonissuesofcommunityintegrationinvariousplaces–forexample,physicalplanningguidelinesthatforbidtheestablishmentofsmokingareasabuttingadjacentproperty.
ThereisonesectionoftheCaliforniaResearchBureau|CaliforniaStateLibrary7organization'scodeofstandardsdevotedentirelytotheissue:Section8:CommunityrelationshipsandgoodneighborpoliciesHomesareexpectedtomakeapositivecontributiontothelifeoftheneighborhood.
Homeswhichcauseproblemsforneighborsarenotprovidingtheirresidentswiththelivingskillsthatareanintegralpartofthesoberlivingexperience.
1.
Houserulesmustfosterbehavioramongresidentswhichisrespectfulofneighborsandthecommunity.
2.
Excessiveneighborhoodorcommunitycomplaintsareevidenceofpoorhomemanagement,andwillbeconsideredaspossiblegroundsforterminationofmembershipprivileges.
3.
Residentsmustbegiventhecontactinformationofaresponsiblepartyrepresentingthehome,andinstructedthattheinformationmustbeprovidedtoneighborsuponrequest.
Aresponsiblepartyrepresentingthehomemustrespondtoneighborhoodcomplaintswithin12hoursofreceiptofacomplaint,evenifitisnotpossibletoresolvetheissueimmediately.
4.
Rulesregardingnoise,smoking,andloiteringmustberesponsivetoneighbors'reasonablecomplaints.
5.
Inneighborhoodswherestreetparkingisscarce,homesmusthaveandenforcerulesregardingparkingcourtesysuchthatresidentsdonotmonopolizeparkinginareasimmediatelyadjacenttothehome.
31IssuesofcommunityintegrationaswellasthelegalstatusofsoberlivinghomesreceivefurthertreatmentintheNetwork'strainingcurriculum,withworkshoptopicsthatinclude"keepingahousehealthy,safeandneighborfriendly"and"recoveryortreatmentactivitiesthatcrosstheline.
"32TheCaliforniaConsortiumofAddictionProgramsandProfessionalsalsohasapublishedsetofstandardsforsoberlivinghomes(whichitterms"soberlivingenvironments"or"SLEs")thattouchesonmanyofthesameissues,statingthat"theresidentswillbemindfulofnoiselevelsofconversations,designatedsmokingareasthatwillnotaffecttheneighbors,andwalkingonsidewalksandpathstodestinations.
"33SoberlivinghomesthatwishtojoinorremainontheConsortium'sregistrysubmittoself-monitoringagreementsandannualvisitsbypeerstoensurethattheyaremeetingthecodeofstandards.
Currently,theConsortiumreportsontheirwebsitethattheyareintheprocessofaligningtheirstandardswiththemorecomprehensiveNationalAssociationofRecoveryResidencesstandards,andthatfutureapplicantsfortheirregistryshouldpreparetomeetthelatter.
34Severalcountygovernmentshaveadoptedcertificationproceduresforsoberlivinghomesthatreceivefundingorreferralsfromlocalcourtsandcountyagencies.
OrangeCounty'scertificationsystem,establishedin2002,ispossiblytheoldestandprobablythemostextensiveofthese.
35Certificationrequiresaninspectionofthefacilityaswellassubmissiontosurpriseinspectionsatanytimewhilecertified;therearestrictstandardsforthemaintenanceofproperties;homesmustadoptagood-neighborpolicytoreceiveandremedycomplaints;andtheymustplacecurfewsandotherrestrictionsontenantbehavior.
KernCountyhasadoptedasimilarsystemwithanevenmorespecificsetofrestrictionsrelatedtoneighborhoodimpactsincludingbanson"loud,abusiveorvulgarlanguage"andsmokingorsocializinginthefrontyard.
36AlamedaCountyusesConsortiumregistrationtocertifysoberlivingprogramsthatreceivecountyfunding.
37ASeptember2013presentationbytheNetworkreferstoaproposalbytheLosAngelesCountyDepartmentofSubstanceAbusePreventionandControltotrainstaffatallsoberlivinghomesinthecounty38;however,accordingtothedepartmentthisplandidnotcometofruition.
39Theexistenceofacertificationsystemdoesnotpreventallconflictsbetweencitiesortheirresidentsandsoberlivinghomesandtherearenotoolsatthistimetoassesstheimpactofeitherpublicorprivatecertificationonthenumber,qualityorintegrationofsoberlivinghomes.
Butthesesystems,basedonlocalSoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation8experienceandacommonneedtobalancetherightsandinterestsofsoberlivingtenantsandtheirneighbors,arealikelytemplateforeitherreplicationinnewlocationsorasystemofregulationatalargerscale.
Wewillrevisitthisconceptin"Policyoptions,"below.
OverviewofstateandfederallawsaffectingsoberlivinghomesFederallawsandregulationThefollowingfederallawshavebeeninfluentialinthedevelopmentofsoberlivingasalargelyunregulatedhousingsector.
FairHousingAct(1988)TheFairHousingAct(FHA),asamendedin1988,promotestheintegrationofindividualswithdisabilitiesintothecommunity.
WhiletheFHAdoesnotpre-emptlocalauthorityoverzoninglaws,itappliestolocalgovernmententitiesandprohibitszoningorlandusedecisionsorpoliciesthatexcludeorotherwisediscriminateagainstindividualswithdisabilitiesandotherprotectedclasses.
TheFHAalsorequiresthatlocalgovernmentmakereasonableaccommodationsinpoliciesandpracticeswhenaccommodationsarenecessarytoprovideequalhousingopportunities.
AmericanswithDisabilitiesAct(1990)The1990AmericanswithDisabilitiesAct(ADA)prohibitsdiscriminationagainstindividualswithdisabilities.
ThesubsequentSupremeCourt"Olmstead"decisionclarifiedthattheADArequiresstatestoplaceindividualsincommunitysettingsratherthaninstitutions.
CodeofFederalRegulations§100.
201Thissectiondefines"handicapped"statusprotectedbyFHAandADAtoincluderecoveringalcoholicsandaddicts.
StatelawIngeneral,Californialawreinforcesfederallawinprohibitinghousingdiscriminationagainstpersonswithdisabilities,includingalcoholicsandaddictsinrecovery.
However,a2003opinionbythestateAttorneyGeneralhasbeenveryinfluentialinallowinglocalgovernmentstoenactrestrictionsonsoberlivinghomes.
FairEmploymentandHousingAct(1959)TheFairEmploymentandHousingActprohibitshousingdiscriminationbasedondisability.
Otherstatelawsprotectresidentswithdisabilitiesfromdiscriminationinhousing,andrequirethatreasonableaccommodationormodificationofthepremisesbemadeforindividualswithdisabilities.
GovernmentCode65008(a),(b)and(d)(2)Thissectionprohibitsdiscriminationinzoninglawsanddifferentrequirementsonsingle-familyormulti-familyhomesbasedonanyprotectedstatusoftheresidents,includingdisability.
CityofSantaBarbarav.
Adamson,27Cal.
3d123,134(1980)ThisdecisionoftheCaliforniaSupremeCourtfoundthatthecity'sdefinitionof"family"basedexclusivelyonblood,marriageorlegaladoption,whichwasusedtolimitthenumberofunrelatedpersonswhocouldliveinasinglehousekeepingunit,violatedtherighttoprivacyenumeratedinthestateconstitution.
86OpinionsoftheCaliforniaAttorneyGeneral30(2003)ThisopinionoftheCaliforniaAttorneyGeneralfoundthatcommunitiescanprohibitlodginghousesinresidentialareas,amechanismthatcitieshavesinceusedinlegislationtolimitthedevelopmentofsoberlivinghomesandotherunlicensedgrouphomes.
LocaleffortstoregulatesoberlivinghomesTherearemultipleinstancesoflocalgovernmentsmovingtoregulatesoberlivinghomesinCalifornia.
InJanuary2013,theLosAngelesCityCouncilsentaproposedCommunityCareFacilitiesOrdinancebacktocommitteeforreview.
40Ifenacted,theordinancewouldhaveclassifiedanyhomewithCaliforniaResearchBureau|CaliforniaStateLibrary9morethanoneleaseinasingle-familyzoneasaboardinghouse,whichisprohibitedinallresidentialzonesunderexistingcode.
ThismeasurehasbeenheavilyopposedbysoberlivingadvocatesincludingTheSoberLivingNetwork41anditisunclearwhetherornottheissuewillbecomeactiveagaininthefuture.
InJuly2015,afederaljudgedismissedachallengetoa2014CostaMesaordinancethatrequiresa650-footbufferbetweensoberlivingandotherkindsofunlicensedgrouphomeswhilelimitingsoberlivinghomestosevenbeds,acasedescribedindetailunder"Recentlegalchallengestosoberlivinghomeregulation,"below.
InOctober2015,thecitycouncilmovedtoexpandtheserestrictionsfromsingle-familyneighborhoodstotheentirecity.
42Anearlier(2008)ordinanceinneighboringNewportBeachgreatlyreducedthenumberofsoberlivinghomesinthecity43buthasbeenthesubjectofcostlylitigation,whichwillalsobeexplainedindetailunder"Recentlegalchallenges"below.
OtherCalifornialocalgovernmentsthathaverecentlyexplored,advancedorenactedregulationofsoberlivinghomesincludeSanClemente(2016),44LagunaNiguel(2016),45SanJuanCapistrano(2016),46LagunaHills(2015),47SanJose(2015),48Encinitas(2015),49SanBernardinoCounty(2014)50andRedlands(2005).
51RegulatoryeffortsinotherstatesCommunityissuesaroundsoberlivinghomesarenotuniquetoCalifornia.
ThereareseveralinstancesofstateandlocalgovernmentsoutsideofCaliforniamovingtoregulatesoberlivinghomesinrecentyears.
PennsylvanialegislationintroducedinFebruary2016wouldcreateastateboardandvoluntarycertificationsystemforsoberlivinghomes.
52A2014lawpassedbytheMassachusettsGeneralCourt53directsthestate'sbureauofsubstanceabuseservicestoestablishavoluntarytrainingandaccreditationprogramforsoberlivinghomesandmandatesthatallstateagenciesorvendorswithstatewidecontractsreferclientsonlytohomescertifiedthroughthisprogram.
InSt.
Paul,Minnesota,anordinancepassedin200854requiresa330-footbufferbetweensoberlivinghomesandrestrictstheiroccupancyanduseofparkingundersomecircumstances;thecityrecentlyconsideredandrejectedaproposaltoexpandthebufferto1,320feet.
55TheseexamplesshownotonlythatCalifornia'sissuesarefarfromunique,butalsothatthepolicysolutionsbeingpursuedelsewherereflectmanyofthesameoptionsavailabletoourstateandlocalgovernments.
RecentlegalchallengestosoberlivinghomeregulationInSolidLandingsBehavioralHealth,Inc.
v.
CityofCostaMesa(2015U.
S.
DistrictLEXIS52475),56agroupofownersandoperatorsofresidentialdrugandalcoholrehabilitationhomescametogethertofileacomplaintagainsttheCityofCostaMesaconcerningarecentlypassedordinance(No.
14-13).
Thisordinanceamendedplanning,zoning,anddevelopmentinthecitytorequiresoberlivingandothergrouphomestoobtainaspecialusepermit.
Itgavethem90daystofileforthepermitandayeartocomply.
Theordinancefoundthefollowing:Tranquility,safety,andcommunityarereasonspersonsinvestinsingle-familyneighborhoods.
Anincreasednumberofsoberlivinghomescausenoise,secondhandsmoke,andovercrowding.
Thedeleteriousimpactofoverconcentrationofthesehomeschangesthecharacterofsingle-familyneighborhoodsandaffectsdisabledpersons'residentialrecovery.
Recoveringaddictsneedacomfortablelivingenvironmenttofinishtheirprograms.
Soberlivinghouseholdsizeandmakeupaffectswater,sewer,roads,parking,andothercityservices.
SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation10Havingtoomanysoberlivinghomeswithlargehouseholdsinproximitytoeachotheraffectsdisabledpersons'chancetoliveinnormalresidentialsurroundings.
Soberlivinghomesarenotincharacterwithsingle-familyneighborhoods,yetresponsibleoperationofthemoffersdisabledpersonstheopportunitytoliveinsingle-familyneighborhoods.
TheownersandoperatorswhofiledthecomplaintallegedthattheordinanceviolatedtheFairHousingAmendmentsAct,theAmericanswithDisabilitiesAct,andtheFourteenthAmendmenttotheConstitution.
Thecomplaintwasinitiallydismissedforproceduralreasons.
Allowedtore-plead,inthesecondfiling,theyaddedadditionalallegations:Cityofficialsweretryingtodiscriminateagainstsoberlivinghomes.
Datadidnotsupportcityconcernsaboutsafetyandoverconcentration.
A650-footseparationruleunreasonablysubjecteddisabledpersonstoembarrassmentandhumiliation.
Theapplicationprocessandinformationrequiredforspecialusepermitsandreasonableaccommodationsisdiscriminatoryandviolatesfederallaw.
Initsanalysis,thecourt57foundtheordinancedidnotviolatefederallaw,didnotsubjectdisabledpersonstodisparatetreatmentorimpact,anddidnotdenythemreasonableaccommodation.
TheCourtgrantedtheCityofCostaMesa'srequestfordismissalanddeniedthecomplaintasmoot.
Anappealofthisdecisionendedinthecity'sfavor,withtheplaintiffsagreeingtoshutdown33facilitieswithoutreceivinganylegalfeesfromthecity.
58InPacificShoresProperties,LLCv.
CityofNewportBeach(746F.
3d936,2014U.
S.
App.
LEXIS40719thCir.
2014),59anownerandtworesidentsrepresentingtwounlicensedsoberlivinghousesandastatelicensedfacilitychallengedapermanentzoningordinance(No.
2008-5)thatsoughttoexcludegrouphomesfromthecitybychangingthedefinitionof"singlehousekeepingunit.
"Beforetheordinance,grouphomescouldlocateanywherewithoutaspecialpermit,butthenewordinancenowrequiredeachsinglehousekeepingunittohaveasinglewrittenleaseandhouseholdresidentstodecidewhowouldbeamemberofthehousehold.
Thesetwochangestothedefinitionofsinglehousekeepingunitwoulddisqualifysoberlivinghomesbecauseresidentsdonotsignwrittenleasesnorareresidentschosenbyeachother,butratherstaffchoosestheresidentstoensurethehouseholdisasoberlivingenvironment.
Soberlivinghomeshad90daystoapplyforaspecialusepermit(iftheywereinanappropriatezonethatallowedforthem).
Theordinance:Regulatedgrouphomesas"residentialcarefacilities"butnotas"singlehousekeepingunits.
"Restrictedgrouphomesfromlocatinginmostresidentialzonesunderanycircumstances.
Allowedgrouphomestoobtainaspecialusepermittolocateinmulti-familyresidentialzones.
Setspecialusepermitcriteriatolimitthenumberoffacilitiesperblockandconsiderationofthecharacteroftheneighborhood.
Providedforawaiverforaresidentialcarefacilityifitisanecessaryreasonableaccommodationfordisabledpersonsinaccordancewithfederalandstatelaw.
TheownerandresidentsthatbroughtthecomplaintagainsttheCityofNewportBeachallegedthattheywerediscriminatedagainstthroughtheenactmentandenforcementoftheordinancebasedontheFairHousingAct,theCaliforniaResearchBureau|CaliforniaStateLibrary11AmericanswithDisabilitiesAct,theCaliforniaFairEmploymentandHousingActandtheEqualProtectionClause.
Initially,thedistrictcourtfoundthat:Grouphomeshadnotsufferedanyharmordisparatetreatmentfromtheordinance.
Therewasnoviolationoffederalandstatelaw.
TherehadnotbeenanydiscriminatoryintentonthepartoftheCity.
Thedistrictcourtheld,however,thatarevisedmoratoriumthatwaspartoftheenactmentandenforcementoftheordinanceongrouphomeswasdiscriminatory.
Onappeal,asubsequentpanelofjudgesoverturnedthedistrictcourtdecision,findingthat"evidenceissufficienttopermittheprotectedindividualstoproceedtotrialunderadisparatetreatmenttheory.
"Substantialevidence,formerlydeemedirrelevantbythedistrictcourt,persuadedthecourttheCitydidindeedintentionallydiscriminateagainstgrouphomesandthatthisdiscriminatoryintentonthepartoftheCityaffectedtheabilityoftheownerandresidentstoshowthattheyhadbeentargetsofdiscrimination.
InJuly2015,TheOrangeCountyRegisterreportedthatthepartiesinPacificShoreshadreachedasettlementagreementunderwhichthecitywillpay$5.
25milliontotheplaintiffs;theordinanceisstillinplace.
60PolicyoptionsStatewidelicensingorre-classificationofsomesoberlivinghomesOneapproachthathasappearedfrequentlyinstatelegislationistoexpandthestate'slicensingpowertoencompasssoberlivinghomesinadditiontoresidentialtreatmentandcarefacilities(seeAppendix.
)ThegeneralproblemwiththisapproachisthattheFairHousingActandrelatedstateandfederalinstrumentsgenerallyprohibitanygovernmentalentityfromrequiringaresidenceforaprotectedclassofpeopletobelicensed,atleastinsofarastheresidencesofthegeneralpopulationdonotbearanequallicensingrequirement.
Torequirelicensingofsoberlivinghomeswithintheexistinglegalframeworks,thestatewouldhavetomaketheargumentthatasoberlivinghomeisnotstrictlyaresidence,butalsoabusinessofferingpersonalorprofessionalservicessimilarorequivalenttothosecurrentlysubjectedtostatelicensure(includingdrugtreatment.
)Forthisreason,soberlivinghomesgenerallyworktoavoidboththeappearanceandtheactualityofprovidingsuchservicestotheirresidents.
61Asmentionedabovein"Privateandpubliccertification,"oneassociationofferstrainingforoperatorstoavoid"crossingtheline"intotreatment.
Evenifthestaterequiredsoberlivinghomesthatprovideservicestocarrylicensesas"adultrecoverymaintenancefacilities,"asvariousrecentlegislativeproposalshaveintended,thesoberlivinghomesthatareabletodemonstratetheirpurelyresidentialstatuscouldpresumablycontinuetooperatewithoutalicense,undertheprotectionofotherstateandfederallawsandlegalframeworks.
Anotheroptionthatmightachievesimilarresultswouldbetoincreasestate-levelenforcementactivitiesagainstfacilities,includingsomesoberlivinghomes,whichprovidedrugandalcoholtreatmentwithouttheappropriatelicensesundercurrentlaw.
FairshareandgeographicdistributionInourpreviousreport"ResidentialCareFacilitiesintheNeighborhood,"wewroteextensivelyontheissueof"fairshare"inthesitingofsuchfacilities.
Behindtheoverallmovementtoprovideforpeoplewithspecialneedsinthecommunity,ratherthaninstitutions,isadesireoneveryone'spartforcommunitiestobeasintegratedandinclusiveaspossible.
"Facilityresidents,"wewrote,"shouldbeabletoremainintheirowncommunities,closetotheirfamilies.
"[emphasisSoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation12added]Furthermore,"[f]acilitiesthataresodenselyclustered–overconcentrated–astorecreateaninstitutionalenvironmentdefeatthepurposeofcommunity-basedcare.
"62Soberlivinghomestodaypresentadifferentsetofcircumstancesfromthosedescribedin"ResidentialCareFacilities.
"Inthatreport,wedescribedtheclusteringofcarefacilitiesinpoorandruralareas,afactthatisseeminglybasedonaneedforcostsavingsaswellassuccessful"NIMBY"("notinmybackyard")campaignsinaffluentareas.
Theclusteringofsoberlivinghomesinaffluentcommunitiesisdrivenbyanapparentlyboomingmarketandthefailureof"NIMBY"effortstopreventtheirproliferation,eveninsomeofthestate'swealthiestcommunities.
63Despitetheseverydifferentunderlyingfactors,theprinciplesoffairshareandintegratedcommunitiesareequallyapplicableinthecaseofsoberlivinghomes,asisourconcernaboutoverconcentration.
Apatterncouldemergeasmorecitiesmovetoregulateandrestrictthepresenceofsoberlivinghomes.
WedonotknowtowhatextentthegrowthofsoberlivinghomesinCostaMesathatledtothepassageofarestrictiveordinancein2014wasadirectresultofthereductioninNewportBeach'ssoberlivinghomes,whichcameaboutbecauseofarestrictiveordinancepassedin2008.
Butthesequenceofeventsinthesetwoadjoiningcitiessuggestsa"dominoeffect"ofsoberlivinghomeoperatorsmovingfromonecitytothenexttoavoidregulation,especiallyiftheselocalregulationscontinuetowithstandlegalchallenges.
Thelogicalconclusionofthisprocesswouldbeatrue"RehabRiviera"–wholecommunitiestransformedintorecoverycampuseswithlittleinthewayoftraditionalcommunallife.
Ontheotherhand,substanceabuseaffectspeopleofeveryclassandeverycommunityhasasubstanceabuseproblem.
Sincesoberlivinghomesareaneffectivesupportfortherecoveryandreintegrationofalcoholicsandaddicts,thereislikelytobeanauthenticneedforthemineverycommunity.
Itwouldbepossible,butcostly,toconductastatewideneedsassessmenttodeterminewhatareminimal,optimalandexcessivenumbersofsoberlivingbedsforeachcity.
Alternatively,thestatecouldadoptaspartofitsfutureplanningguidelinesorhousingelementlawastrictlypopulation-basedformulafordeterminingthesame.
SuchapolicyframeworkwouldnothavetobeintenselyprescriptiveorregulatorytohaveastrongimpactonthedistributionofsoberlivinghomesamongCaliforniacommunities.
Stateorlocallawcouldalsopotentiallyaddresstheissueofsomesoberlivinghomesfunctioningessentiallyasextended-stayhotelsor–astheyareclassifiedinseveralproposedorenactedordinances64–boardinghouses.
Soberlivinghomesingeneralservepeoplewithtiestothecommunitywheretheyarelocated.
IfahomeisservingtenantsfromdistantlocationswithinoroutsideCalifornia,thereisarguablyathresholdbeyondwhichthehomesactuallyarefunctioningmoreasaninnthanaresidence.
However,thehistoryofrecenteffortstolimitshort-termrentalsinSanFrancisco65suggeststhecomplexityanddifficultyofcreatingfunctionalpublicpolicytoregulatethiskindofactivity.
StatewidecertificationAtleasttwootherstatesarecurrentlydevelopingstatewidecertificationschemesfortheirsoberlivinghomes.
Therearemanypossiblewaystoorganizeandaccomplishsuchascheme,butallofthemrelyonthestate'sowninvolvementwithsoberlivinghomes,primarilyasareferrerorfunderofthosewhorefertenantstothehomes.
ThisalsoreflectstheexperienceofCaliforniacountiesthatrequirecertificationofallcounty-involvedsoberlivinghomes.
BoththeMassachusettsandPennsylvaniacertificationschemesarevoluntary;therepeatedfailureofpresumablymoreprescriptivelicensurelegislationinCaliforniamayreflectthechallengestoplacinganysuchblanketrequirementonsoberlivingCaliforniaResearchBureau|CaliforniaStateLibrary13homes.
Forthisreason,thegovernment'sroleinreferringtenantsisanimportantlevertoencourageparticipationinanypubliccertificationsystem.
Bothcountyandprivatecertificationsystemsforsoberlivinghomes,asdescribedabove,focusonsuccessfulintegrationofthehomeanditstenantsintheneighborhood.
Thisistheprimaryadvantageofcertificationfromtheperspectiveofthecommunity.
Thestatehasafurtherinterestinthesupportivequalityofhomesthatarebeingusedinconnectionwithotherstateprogramssuchaspenalrealignment.
Astatewidecertificationschemecouldalsoaddressoverconcentration–albeitnotnecessarilyofthe"RehabRiviera"variety–bylimitingthenumberofnewcertificationsbasedonlocalneed.
Thereareseveraldifferentwaysthestatecouldapproachcertification.
Theexistingprivateassociationsofsoberlivinghomesbothhavecrediblesystemsoftheirownandcouldbeadoptedaspartners,asAlamedaCountyhasapparentlydonewiththeCaliforniaConsortiumofAddictionProgramsandProfessionals.
Thestatecouldalsoconsiderrequiringcountygovernmentstoadoptcertificationschemesoftheirown,perhapsincludinganoptiontouseoneoftheassociations,whichwouldlikelybeanattractiveoptioninsmallercountieswithouttheresourcestodevelopalocalsystem.
AmorecentralizedapproachsimilartothesystemsunderdevelopmentinPennsylvaniaandMassachusettswouldlikelyrequiretheappointmentofastateboardandsomenewpositionsinstategovernmenttooverseeandoperatethesystem.
SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation14Appendix:RecentproposedlegislationThefollowingtableincludesallbillsdirectlyorindirectlyaffectingsoberlivinghomesthathavebeenintroducedsincethe1998-99legislativesession.
YearStatusBill,SponsorDescription1998VetoedbyGovernor.
SB1540(Karnette)Requiredstatelicensureofadultrecoverymaintenancefacilitiesor"soberlivinghomes"andrequiredtheDepartmentofSocialServicestodevelopplansregardingcommunitycarefacilities.
1999VetoedbyGovernor.
SB986(Karnette)RequiredtheDepartmentofAlcoholandDrugProgramstolicenseandregulateadultrecoverymaintenancefacilitiesanddirecteddepartmenttoestablishfeestoregulatesuchfacilities.
2000DiedinAssemblyHealthCommittee.
SB987(Karnette)RequiredtheDepartmentofAlcoholandDrugProgramstoadministerthelicensureandregulationofadultrecoverymaintenancefacilities.
2001Neverheardincommittee.
SB239(Morrow)Requiredcourt,probationdepartment,DepartmentofCorrections,orCaliforniaYouthAuthoritytoreferpersonstoasoberlivingfacilityonlyifcertified.
2001Neverheardincommittee.
SB1089(Karnette)RequiredtheDepartmentofSocialServicestodevelopandsubmittotheLegislatureplansregardingastatewidedatabaseofalcoholanddrugabusetreatmentandrecoveryfacilitiesandaplanforregulatingunlicensedresidentialprograms.
2002DiedinSenateAppropriations.
AB2317(Chu)RequiredtheDepartmentofAlcoholandDrugProgramstodevelopandadoptemergencyregulationsgoverningthelicensingandoperationofadultrecoverymaintenancefacilitiesonorbeforeJuly1,2003.
2003Neverheardincommittee.
SB340(Florez)RequiredtheDepartmentofAlcoholandDrugProgramstoadministerthelicensureandregulationofadultrecoverymaintenancefacilities.
2005DiedinSenateAppropriations.
AB36(Strickland)RequiredtheDepartmentofAlcoholandDrugProgramstolicenseAdultRecoveryMaintenanceFacilities.
CaliforniaResearchBureau|CaliforniaStateLibrary15YearStatusBill,SponsorDescription2006Neverheardincommittee.
AB1225(Strickland)Requiredtheownerofanalcoholismanddrugabuserecoveryortreatmentfacilitythatservesmorethansixunrelatedpersonstonotifythelocallawenforcementagencyofitsexistence.
Thebillwouldhaveprohibitedafacilityfromexistinginalocationwithmorethanfivefacilitieswithinasquaremile,withmorethanonefacilitylocatedonasinglecityblock,orwithin1,000feetofanotherfacility.
2007Neverheardincommittee.
AB327(Horton)RequiredDepartmentofSocialServices,inconsultationwiththeDepartmentofAlcoholandDrugProgramsandotherstatedepartmentstoestablishandmaintainastatewidecomputerizeddatabaseofcommunitycarelicensingfacilitiesandalcoholismanddrugabusetreatmentandrecoveryfacilities.
2007DiedinSenateHealthCommittee.
AB724(Benoit)Defined"soberlivinghome"asaresidentialpropertywhichisoperatedasacooperativelivingarrangementtoprovideanalcohol-anddrug-freeenvironmentforpersonsrecoveringfromalcoholismordrugabuse,orboth,whoseekalivingenvironmentinwhichtoremaincleanandsober,andwhichmeetsotherspecifiedrequirements.
2007VetoedbyGovernor.
SB992(Wiggins)RequiredtheDepartmentofAlcoholandDrugProgramstolicenseAdultRecoveryMaintenanceFacilities.
2009DiedinAssemblyAppropriations.
AB1055(Chesbro)ExpandedtheDepartmentofAlcoholandDrugProgramslicensureauthorityforalcoholanddrugtreatmentfacilitiestoinclude24-hourfacilitiesthatdonotrequireahealthfacilitylicense.
2009Neverheardincommittee.
SB214(Benoit)Providedthatasoberlivinghomeisexemptfromlicensureunderspecifiedconditions.
Aresidencehousingthosepurportedtoberecoveringfromdrugandalcoholabusewouldbepresumedtobeasoberlivinghomeifithasbeencertified,registered,orapprovedbyarecognizednonprofitorganizationthatprovidesacrediblequalityassuranceforapplicantsormembers.
SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation16YearStatusBill,SponsorDescription2009Gutandamendedtoaddressadifferentsubject.
SB689(Hollingsworth)Authorizedacountyorcitytoprohibitapersonreleasedonparole,afterhavingservedatermofimprisonmentinstateprisonforanyoffenseforwhichregistrationasasexoffenderisrequired,fromresidingduringtheperiodofparole,inanysinglefamilydwellingwithanyotherpersonalsoonparoleafterhavingservedatermofimprisonmentinstateprisonforanyoffenseforwhichregistrationasasexoffenderisrequired,unlesslegallyrelatedbyblood,marriageoradoption.
2010DiedinSenateAppropriations.
AB2221(Beall)Permitted24-hourresidentialtreatmentfacilitiesthatprovideservicestoadultsrecoveringfromalcoholanddrugabusethatarelicensedbytheDepartmentofAlcoholandDrugProgramstoprovidemedicalservicesandthefacilitywouldnotrequireahealthfacilitylicense.
2012DiedinAssemblyAppropriations.
AB40(Mansoor)Requiredanalcoholismordrugabuseprogramlicenseetoreportspecifiedeventsorincidents,includingthedeathofaresident,withinoneworkingdayoftheeventorincident.
2012Neverheardincommittee.
AB1983(Mansoor)DefinedintegralalcoholanddrugabusetreatmentfacilitiesforpurposesoflicensurebytheDepartmentofAlcoholandDrugProgramsandexcludedintegralfacilitiesfrombeingresidentialuseofproperty.
2014DiedinAssembly.
AB2335(Mansoor)Exemptedasoberlivinghomeorsupportivehousingfromlicensureasanalcoholanddrugtreatmentprogram.
2014DiedinSenate.
AB2491(Nestande)RequiredtheDepartmentofHealthCareServicestolicenseandregulateadultrecoverymaintenancefacilities.
Exemptedsoberlivinghomesfromlicensure.
2016DiedinAssemblyHealthCommittee.
AB838(BroughandHarper)Requiredanyrecoveryhousesoperatedbylicensedcommunitycarefacilitytobedeemedtobefacilitiesthatprovidetreatmentorservicesunderthelicenseofthecommunitycarefacility.
2016Inactivebill.
AB1283(BatesandBrough)Allowedacity,county,orbothtoadopthealthandsafetystandardsandenforcementmechanismsforstructuredsoberlivinghomes.
CaliforniaResearchBureau|CaliforniaStateLibrary17YearStatusBill,SponsorDescription2016HeldinAssemblyAppropriations.
AB2255(MelendezandBrough)Definedsoberlivinghomesasresidentialpropertythatmeetsspecifiedrequirements,presumearesidenceisasoberlivinghomeifcertified/registered/approvedbyastate-recognizednon-profitassociation,andrequirethenon-profittoestablishminimumstandardsforsoberlivinghome.
2016HeldinAssemblyAppropriations.
AB2403(Bloom,Wilk,Allen,Brough)AuthorizedtheDepartmentofHealthCareServicestodenyanapplicationforanewfacilitylicenseiftheproposedlocationisinproximitytoanexistingfacilitythatwouldresultinoverconcentration.
2016DiedinAssemblyPublicSafetyCommittee.
AB2772(Chang,Brough,Bates,Wagner)RequiredapersonseekingtreatmentatanalcoholismanddrugabuserecoveryortreatmentfacilitybecauseheorshehasbeenorderedorrequiredtoparticipateinadrugtreatmentprogrampursuanttothePenalCodetoseektreatmentfromanalcoholismanddrugabuserecoveryortreatmentfacilitythatislicensedbytheDepartmentofHealthCareServicesandincompliancewiththelocallawswherethefacilityislocated.
Endnotes1Wittman,FriednerandPolcin,Douglas.
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samhsa.
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3Hogin,Christi.
"SoberLivingBusinessesinResidentialZones.
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com/Western-City/August-2014/LegalNote-Sober-Living-Businesses/4Allen,Nick.
"WelcometoMalibu,theRehabRiviera.
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althoughitsresidentswishitwasn't.
"TheDailyTelegraph,September2,2013.
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co.
uk/news/worldnews/northamerica/usa/10280963/Welcome-to-Malibu-the-Rehab-Riviera.
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html5Foster,LisaK.
"ResidentialCareFacilitiesintheNeighborhood:Federal,State,andLocalRequirements.
"CaliforniaResearchBureau,December2002.
6Polcin,DouglasL.
andHenderson,Diane.
"ACleanandSoberPlacetoLive:Philosophy,Structure,andPurportedTherapeuticFactorsinSoberLivingHouses.
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nlm.
nih.
gov/pmc/articles/PMC2556949/7SeeforexamplePolcin,DouglasL.
;Korcha,RachaelA.
;Bond,JasonandGalloway,Gantt.
"SoberLivingHousesforAlcoholandDrugDependence:18-MonthOutcomes.
"JournalofSubstanceAbuseTreatmentvol.
38,no.
4,2010.
8SoberLivingNetworkwebsite.
http://www.
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SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation189Barker,Kim.
"NewYorkCityStartsMovingTenantsFrom'Three-Quarter'Homes,butOthersAreLeftBehind.
"NewYorkTimes,August5,2015.
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html10Leonard,JackandYi,Daniel.
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"COLUMNONE:PayingaPricetoStaySober:Substandardlivingconditions,welfarefraudandprofiteeringaboundinsomeprivatelyrunfacilitiesthatshelterrecoveringaddictsandalcoholics,"LosAngelesTimes,October21,1992.
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latimes.
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pdf13Polcin,DouglasL.
andHenderson,Diane.
"ACleanandSoberPlacetoLive:Philosophy,Structure,andPurportedTherapeuticFactorsinSoberLivingHouses"JournalofPsychoactiveDrugs.
2008Jun;40(2):153-159.
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ncbi.
nlm.
nih.
gov/pmc/articles/PMC2556949/14TheSoberLivingNetwork.
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;Murray,AlanT.
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ccapp.
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(2010b)citeafigureof500houseswithinSoberLivingNetwork.
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2http://www.
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org/article/cebb8a44c84a4aed9c5ac1b1ff68a2eb/addiction-epidemic-fuels-runaway-demand-sober-homes23Polcin,DouglasL.
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24Barker,Kim.
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26Forexample,Proposition36(2000)passedwith60.
9%ofthestatewidevote,majoritiesofthevotein40ofthe58countiesandover40%ofthevoteineverycounty.
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http://www.
soberhousing.
net/documents/SLNetwork_standard_home_Rev10-01-2011.
pdf32TheSoberLivingNetwork.
"Trainingworkshops,seminarsandcourses.
"http://www.
soberhousing.
net/training_courses.
html33CaliforniaConsortiumofAddictionProgramsandProfessionals.
"StandardsforSoberLivingEnvironments.
"January19,1993;rev.
February16,2012.
https://www.
ccapp.
us/site_media/media/attachments/flatpages_flatpage/130/Standards1.
13.
2015.
pdf34CaliforniaConsortiumofAddictionProgramsandProfessionals.
"SoberLivingatCCAP:30YearsStrong!
"https://www.
ccapp.
us/soberliving/#SLE%20Resources35OrangeCountySheriff'sDepartment.
"OrangeCountyAdultAlcoholandDrugSoberLivingFacilitiesCertificationGuidelines.
"January27,2004.
http://ocsd.
org/civicax/filebank/blobdload.
aspxBlobID=737736KernCountyMentalHealthClinicalServicesHousingUnit.
"CertificationGuidelinesforSoberLivingEnvironment(SLE)Facilities,"rev.
June2016.
http://media.
wix.
com/ugd/2d0775_32b08181653f4c3abf29c88b1060c53b.
pdf37AlamedaCountyBehavioralHealthCareServices.
"ACBHCSSUDTreatmentReferralGuideFY2015/16:Licensedand/orCertifiedAdultSubstanceUseDisorderTreatmentProgramsContractingwithAlamedaCountyBehavioralHealthCareServices.
"Rev.
September15,2016.
http://www.
acbhcs.
org/providers/SUD/docs/resources/SUD_Directory_Older_Adult_Adolescents.
pdf38TheSoberLivingNetwork.
"ReviewofCommunityCareFacilitiesOrdinance(CCFO)andCurrentLACountyTrainingPlansforSoberLivingEnvironments.
"PresentationtotheLosAngelesCountyBoardofSupervisors,September2013.
http://file.
lacounty.
gov/bos/supdocs/79876.
pptx39Viaemail,April14,2016.
40CityofLosAngelesDepartmentofCityPlanning.
"RE:CommunityCareFacilitiesOrdinance.
"MemorandumtotheAdHocCommitteeonCommunityCareFacilities,LosAngelesCityCouncil,June25,2014.
(CouncilFileNo.
14-0118.
)http://clkrep.
lacity.
org/onlinedocs/2014/14-0118_rpt_plan_06-25-14.
pdf41TheSoberLivingNetwork.
"ReviewofCommunityCareFacilitiesOrdinance(CCFO)andCurrentLACountyTrainingPlansforSoberLivingEnvironments.
"PresentationtotheLosAngelesCountyBoardofSupervisors,September2013.
http://file.
lacounty.
gov/bos/supdocs/79876.
pptx42Graham,Jordan.
"CostaMesadoublesdownonsober-livinghomerestrictions.
"TheOrangeCountyRegister,October13,2015.
http://www.
ocregister.
com/articles/city-687375-mesa-sober.
html43Nicolai,Megan.
"NewportBeachsettleslegalbattleoversober-livinghomes.
"TheOrangeCountyRegister,July15,2015.
http://www.
ocregister.
com/articles/city-671919-group-court.
html44Swegles,Fred.
"SanClementeendsmoratoriumonsober-livinghomes.
"TheOrangeCountyRegister,June15,2016.
http://www.
ocregister.
com/articles/city-719442-moratorium-council.
html45Shimura,Tomoya.
"LagunaNiguelputstemporarybanonsober-livinghomes.
"TheOrangeCountyRegister,August9,2016.
http://www.
ocregister.
com/articles/city-725121-living-facilities.
html46Jarrell,Allison.
"CouncilApprovesYear-LongMoratoriumonNewSober-LivingHomes.
"TheCapistranoDispatch,March25,2016.
http://www.
thecapistranodispatch.
com/council-approves-year-long-moratorium-on-new-sober-living-homes/47CityofLagunaHills.
"GroupHomesInformationalMeeting.
"August17,2015.
http://www.
ci.
laguna-hills.
ca.
us/DocumentCenter/Home/View/157148Wadsworth,Jennifer.
"SanJoseSeeksGreaterLocalControloverSoberLivingHomes.
"SanJoseInside,September28,2015.
http://www.
sanjoseinside.
com/2015/09/28/san-jose-seeks-greater-local-control-over-sober-living-homes/49Langager,DianeS.
"AgendaReporttotheCityCouncil.
"CityofEncinitasPlanningandBuildingDepartment,September9,2015.
http://encinitas.
granicus.
com/MetaViewer.
phpview_id=2&clip_id=1199&meta_id=52640SoberLivingHomesinCalifornia:OptionsforStateandLocalRegulation2050Nelson,Joe.
"RegulationsonsoberlivinghomesapprovedinSanBernardinoCounty.
"TheSun,February25,2014.
http://www.
sbsun.
com/government-and-politics/20140225/regulations-on-sober-living-homes-approved-in-san-bernardino-county51MinutesoftheCityCounciloftheCityofRedlands,September30,2005.
http://ci.
redlands.
ca.
us/clerk/minutes/050920-cc.
pdf52Burg,Amanda.
"StateRep.
TinaDavisIntroducesBillAimedAtResolvingRecoveryHouseIssues.
"LevittownNow.
com,February3,2016.
http://levittownnow.
com/2016/02/03/74518/Forfulltextoftheproposedlaw,see:http://www.
legis.
state.
pa.
us/CFDOCS/Legis/PN/Public/btCheck.
cfmtxtType=HTM&sessYr=2015&sessInd=0&billBody=H&billTyp=B&billNbr=1884&pn=293953Forfulltextofthelaw,see:https://malegislature.
gov/Laws/GeneralLaws/PartI/TitleII/Chapter17/Section18A54Havens,Chris.
"St.
PaulCouncilsetsregulationsforsoberhouses.
"StarTribune,July10,2008.
http://www.
startribune.
com/st-paul-council-sets-regulations-for-sober-houses/24285589/55Melo,Frederick.
"'Soberhousing'rulesunchangedbynewSt.
Paulregulations.
"St.
PaulPioneerPress,April6,2016.
http://www.
twincities.
com/2016/04/06/sober-housing-rules-unchanged-by-new-st-paul-regulations/56Publiclyavailabletextofthecaseishere:http://www.
leagle.
com/decision/In%20FDCO%2020150422850/SOLID%20LANDINGS%20BEHAVIORAL%20HEALTH,%20INC.
%20v.
%20CITY%20OF%20COSTA%20MESA57UnitedStatesDistrictCourt,C.
D.
California.
April21,2015.
http://www.
leagle.
com/decision/In%20FDCO%2020150422850/SOLID%20LANDINGS%20BEHAVIORAL%20HEALTH,%20INC.
%20v.
%20CITY%20OF%20COSTA%20MESA58Money,Luke.
"CostaMesareachesdealtoclosedozensofsober-livingfacilities.
"LosAngelesTimes,April6,2016.
http://www.
latimes.
com/local/lanow/la-me-ln-sober-living-20160406-story.
html59Publiclyavailabletextofthecaseishere:http://cdn.
ca9.
uscourts.
gov/datastore/opinions/2013/09/20/11-55460.
pdf60Nicolai,Megan.
"NewportBeachsettleslegalbattleoversober-livinghomes.
"TheOrangeCountyRegister,July15,2015.
http://www.
ocregister.
com/articles/city-671919-group-court.
html61Knopf,Allison.
"Somesoberhomesmovedangerouslyclosetotreatment.
"AddictionProfessional,November4,2013.
http://www.
addictionpro.
com/article/some-sober-homes-move-dangerously-close-treatment62Foster,LisaK.
,"ResidentialCareFacilitiesintheNeighborhood:Federal,State,andLocalRequirements.
"CaliforniaResearchBureau,December2002.
p.
24.
63Guldiman,Suzanne.
"ConcernsRiseOverIncreaseofSoberLivingFacilitiesinTopanga,"TopangaMessenger,October8,2015.
http://www.
topangamessenger.
com/story_detail.
phpArticleID=787864SeeabovefordiscussionofLosAngeles'proposedCommunityCareFacilitiesOrdinance.
Morerecently,inactionstakenbetweenFebruaryandMay,2016,thecityofSanClementecreatedanew"boardinghouse"usecategorythatencompassesmanysoberlivinghomes.
http://san-clemente.
org/home/showdocumentid=2860865Romney,Lee;Lien,TraceyandHamilton,Matt.
"AirbnbwinsthevoteinSanFrancisco,butcity'shousingdebaterageson.
"LosAngelesTimes,November4,2015.
http://www.
latimes.
com/local/california/la-me-ln-airbnb-san-francisco-vote-housing-debate2-20151104-htmlstory.
html