Homeless Resource Center Amendments

Salt Lake City is proposing changes to how future Homeless Resource Centers will be approved in the city.

Project Overview

In late 2021, the city started the process to change how homeless resource centers (HRC) are approved. This was initiated by a request to locate a new homeless shelter in a neighborhood that is already home to several shelters, overburdening that neighborhood and the services provided to that neighborhood. The City Council adopted an ordinance earlier in 2022 that eliminated the HRC use from the land use tables and asked the Planning Division to come up with an alternative process to approve future homeless resource centers. The Planning Division spent the spring and summer gaining an understanding of how city services, neighborhoods, service providers, and those that use the current shelters may be impacted by changes. The proposal was created based on this input.

The Planning Division is proposing that the City Council adopt an overlay zoning district to regulate future homeless resource centers and homeless shelters. The overlay would be adopted into the zoning code, along with updates to the existing regulations that apply to homeless resource centers and homeless shelters. Prior to opening a new homeless resource center, the overlay would have to be applied to the zoning map. This means that anyone who wants to establish an HRC or shelter, would have to apply for a zoning map amendment. More information about this process can be found below.

Purpose for the Proposed Changes

The primary purpose of this project was to protect the safety and welfare of those experiencing homelessness within Salt Lake City, while better understanding the community and city service impacts that resource centers may cause. Staff sought to gain additional understanding of the financial limitations that existing and likely future resource centers face, so that regulations wouldn't further financially burden the organizations that provide homeless services. One of the goals of the project is to address the impacts and concerns that can be managed by zoning regulations. Zoning regulations cannot address all of the issues associated with homelessness and this project is focused on those issues zoning can address.


Current Regulations

(Prior to Moratorium)

The prior regulations, which were in place until May of 2022, were associated with a lengthy public process in 2017 that established a conditional use process. The regulations allowed an HRC as a conditional use in the CG (General Commercial), D-2 (Downtown Support), and D-3 (Downtown Warehouse/Residential District) zoning districts.

Permitted Zoning Districts

A conditional use is a use that may create larger impacts and therefore requires a more thorough review process to determine how those impacts can be reduced. The  conditional use standards  and process can address negative impacts and apply changes or improvements on the site to reduce any identified impacts. A conditional use must be approved according to Utah Code unless impacts cannot be reduced, and they can as a general rule, be reduced. The zoning ordinance also includes specific standards that HRCs must comply with, which include:

  • Security and Operations Plan that involved the following:
    • A community relations and complaint response program that would address property maintenance, unlawful behavior by occupants of the HRC on site or in the public right of way, and complaints from the surrounding community.
    • On-site security and emergency services.
    • Designated smoking area.
    • No public queuing outside.
    • All trash and debris be collected by 6 AM the following day.
  • Demonstration of how the building and site is designed to prevent crime based on:
    • Natural Surveillance.
    • Natural Access Control.
    • Territorial Reinforcement.
    • Maintenance.

Conditional Use Application Process

The current regulations, prior to the moratorium, required the submittal of a conditional use application. The conditional use requires a 45-day public notification period. The notification period involves providing notice to the associated community council, as well as property owners and tenants within 300' of the location of the proposed HRC.

After the 45-day notification period ends, a public hearing is held with the Planning Commission. The Commission will approve the conditional use if conditions can be placed on the proposal to mitigate any identified negative anticipated impacts. In rare circumstances can a conditional use be denied by the Planning Commission.


Proposed Process

Introduction of Homeless Resource Center Overlay Zone

Planning Staff, through engagement with community representatives and stakeholders, as well as the analysis of the feedback provided, determined that the creation of a Homeless Resource Center Overlay Zoning District would enable the appropriate regulatory bodies to review and make a final decision on the proposal. The proposed overlay addresses impacts on city services, and the surrounding community. Additionally, an analysis of the benefit and needs of the proposed new HRC is a significant consideration. No amendments to the CPTED (Crime Prevention Through Environmental Design) requirements are proposed at this time.

*This overlay is prohibited in M-1 (Light Manufacturing) and M2 (Heavy Manufacturing) zoning districts, due to the proximity to potentially harmful and impactful uses.

What is an overlay zoning district?

Overlay zoning districts establish supplemental regulations in addition to the requirements found in the underlying zoning district. A zoning overlay district is established through a zoning map amendment where if applied, the final decision to apply it is made by the City Council.

What is required for an application process to establish a new HRC?

A zoning map amendment application would be required to establish a new HRC. Upon receipt of the application, staff reviews the submittal to ensure a complete application. Once the application is complete, a courtesy notice is provided to the surrounding property owners and tenants within 300'. The notice provides information on the request, how to stay involved and how to obtain additional information. Notice is also provided to the applicable community council. A community council can request a presentation at one of their meetings so community members can receive pertinent information. After the 45-day notification period and outreach, a public hearing is held with the Planning Commission. The Planning Commission reviews the proposal and provides a recommendation to the City Council. The City Council will then hold a briefing, a public hearing and will make a final decision on whether to apply the overlay to a parcel.

What is the associated public process for a zoning map amendment?

The public process is ongoing until a final decision is made. There are many opportunties to follow and comment on proposals. As mentioned above, zoning map amendments require a 45-day public notification period before the Planning Commission review and recommendation. Both the applicable community council, as well as the properties within 300' of a site receive notification of the submitted application. Planning accepts public comments during the 45-day notification period and during the Planning Commission public hearing. After the Planning Commission review and recommendation, the application and all public input thus far is transmitted to City Council. The City Council then holds a work session, a public hearing, and ultimately a formal meeting to make a decision.


Proposed Regulations

How are the review standards changing?

The proposed HRC Overlay includes specific factors to consider when applying the zoning district for a new HRC. In addition to the factors for consideration, the proposed overlay would require compliance with regulations for HRCs. The associated standards for Homeless Resource Centers are nearly identical to the prior qualifying provisions associated with the Conditional Use Application to establish a new HRC ( view section above ). In addition to the HRC standards, staff added submittal requirements and additional factors to consider when considering the zoning map amendment for the HRC overlay.

The submittal requirements include the following information:

  • Demonstrated compliance with the review standards for HRCs.
  • Detailed list of all of the anticipated supportive services offered on the property, including a description of the service and the associated square footage.
  • Data regarding similar uses in Salt Lake and Davis Counties, including the total number of facilities, the total number of people who use the facilities, the number of individuals served with overnight tenancy in each facility, average percentage of occupancy of the facilities, and the number of nights per year that the other facilities are at capacity.
  • Data regarding the total number of beds available to people experiencing homelessness and the estimated number of people currently experiencing homelessness.
  • Identified funding sources to operate the facility and any anticipated funding requests made to the city to operate the facility.

Information required by the City shortly after an application:

  • Information regarding the impact to the police department and the impact that a new homeless resource center has on the ability of the police department to provide services to other parts of the city.
  • Information regarding the impact to the fire department and the impact that a new homeless resource center has on the ability of the fire department to provide services to other parts of the city.
  • Information on the number of civil enforcement cases associated with existing homeless resource centers, including the types of complaints, the estimated impact on civil enforcement workloads, and the ability to provide services to other parts of the city.
  • Information regarding the accessibility of the site and its impact on Public Services.
  • The city demonstrates an updated website to provide any and all city departments to contact for various complaints such as graffiti, encampment clean up, enforcement issues, and any other identified city services that may address impacts on the neighborhood from HRCs.

New Factors to Consider for the Map Amendment:

  • The anticipated benefits to people experiencing homelessness provided by the facility in the proposed location.
  • The proximity of support services that benefit people who may use the facility and the ability of people to access services from the proposed location. If services are not within walking distance of the proposed facility, a transportation plan connecting residents to services is required.
  • The ratio of homeless-related services proposed in Salt Lake City compared to other jurisdictions in Salt Lake and Davis Counties.
  • The anticipated impacts on city services, including fire, police, and any other city department that would be involved in providing services to the facility.
  • Proximity to other homeless resource centers.
  • The anticipated impact on other government entities that may provide service to the facility if the information is readily available from the government entities.
  • The anticipated impact the health and safety of public spaces within 1/4 mile of the proposed facility.
  • Equity between different neighborhoods in providing HRCs and other locations of impactful land uses. High-impact land uses are those land uses that produce higher levels of pollution than the permitted uses in the underlying zone, land uses that attract crime or produce public nuisances, and land uses located by a government entity, that is not subject to the land use regulation of the city.

What happens to existing Homeless Resource Centers?

The existing HRCs could have the proposed overlay applied to each property. This proposal will not alter the existing locations or how they currently operate.

Temporary Homeless Shelter Amendments

As part of this project, Planning is proposing amendments to the establishment of temporary homeless shelter regulations. In order to comply with Utah State Code, the temporary homeless shelter regulations include:

A temporary shelter can be established when one of the two conditions is present in the City:

  • Existing HRCs and shelters are at capacity and are likely to be at capacity due to nighttime temperatures dropping below 32 degrees Fahrenheit.
  • Required to provide emergency shelter during winter months by the state.

Location of a temporary shelter may be located within the city in an existing building if the building:

  • Is located in a zoning district that allows hotels, motels, or multi-family dwellings or is owned by a government entity:
    • was constructed as a hotel, motel, or for temporary lodging purposes.
    • contains restrooms adequate for occupancy load.
    • complies with applicable building and fire codes.
    • is located further than a 1-mile radius from an existing HRC. 1,000 foot community location proximity buffer can be reduced or waived by the CAN Director.

The applicant must provide the following information to establish a temporary shelter:

  • Security and operation plan that includes onsite security, intake process, identified smoking areas, and maintenance plan. and proposed signage.

Why Change the Existing Regulations?

On October 4, 2021, Mayor Mendenhall initiated a petition to amend the zoning regulations for homeless resource centers (HRCs). The petition stipulated the following:

  • Prohibit new, future homeless shelters or homeless resource centers in all zoning districts in the city.
  • Modify the conditional use standards for homeless shelters or homeless resource centers; and,
  • Distinguish temporary overflow shelters from permanent shelters and homeless resource centers that operate year-round and potentially allow temporary overflow homeless shelters in certain zones.

The petition was complete in April 2022, with the City Council adoption of the ordinance that removed HRCs and homeless shelters from the land use tables, resulting in the uses no longer being allowed. Due to several factors, the Planning Division recommended that only item 1 in the petition be completed, with the understanding that items 2 and 3 would likely be addressed with an update to the zoning ordinance.

The City Council asked Planning to develop a proposal to permit and regulate future HRCs in the City. The request stated that the proposal needs to be transmitted to City Council no later than January 31, 2023. Additionally, if City Council doesn't adopt new regulations by May 3, 2023, the former HRC regulations would be reinstated.


Project Outreach & Engagement

Stakeholder Participation and Feedback

Planning staff, with the help of the Mayor's Office, engaged with city service representatives, business owners, community representatives, homelessness advocates, service providers, and individuals experiencing homelessness. The engagement sessions were to gain input, understand concerns and obtain direction on the proposed amendment options.

Planning Staff Analysis

As part of the Homeless Resource Center (HRC) text amendment, Planning Staff compiled a map utilizing GIS to analyze existing conditions associated with the current locations of the HRCs and to evaluate acceptable locations for future centers. To fully understand the breadth of the complexity of the needs of the unsheltered community, community and city service impacts, staff mapped the location of existing HRCs, services utilized by the unsheltered community, fixed transit locations, fire districts, existing and recurring encampments, and opportunity zone locations. The provided map illustrates the locations of HRC services, as well as existing HRCs.

Current location of HRCs and Resources


Providing Feedback

To provide feedback, please email comments to any of the staff listed below. All feedback will be provided to the Planning Commission and City Council.

The Planning Commission will hold a public hearing on December 14 th , 2022, at 5:30 pm, in room 326 of the City and County Building located at 451 South State Street. Anyone interested in providing feedback on this proposal can address the commission. Please keep your comments related to the zoning proposal, which is what the Planning Commission is being asked to consider. While other homeless-related issues are important, the Planning Commission has a limited role in how those other issues can be addressed.

Learn more about the proposal by watching the  Recorded Facebook Live Q&A Session  held on November 1 st .

You can also watch the November 9 th , Planning Commission briefing, where the Planning Division provided details of the proposal to the Planning Commission. View   HRC Amendments – Planning Commission briefing  .

An in-person Open House was held on November 10 th , at the Public Safety Building in a Community Room (475 S 300 E, Salt Lake City, UT 84111).

As part of this initiative, a short survey was created and remained open until November 30 th .

Have questions or want to email comments?

Nick Norris, Planning Director //  nick.norris@slcgov.com 

Michaela Oktay, Deputy Planning Director //  michaela.oktay@slcgov.com 

Kelsey Lindquist, Planning Manager //  kelsey.lindquist@slcgov.com 

Current location of HRCs and Resources