Astoria City Council Work Session: Code Review and Shelter Update (Oct 27, 2026)

The Astoria City Council held a work session on October 27, 2026, beginning at 6:00 PM. The meeting covered three main agenda items: routine agenda setting, proposed amendments to the Astoria Municipal Code (including administrative and policy-level changes), and an update on the city's Shelter First Policy. Council discussed future work session topics, reviewed draft code amendments across multiple chapters, and received detailed presentations on shelter capacity, enforcement statistics, and program progress. Key decisions included support for a final year of emergency cold weather shelter funding with an outreach effort to neighboring jurisdictions and nonprofits.

Agenda Setting

• City Manager Spence reviewed the upcoming work session calendar. Planned items include: review of a draft city council handbook (November 23), an update on the development review audit, and a discussion with Pacific Power about converting approximately 700 streetlights to LED. The LED project is estimated at $156,000 with a city cost of roughly $50,000, but would yield approximately $25,000 in annual energy savings (2–3 year payback). Pacific Power has a December deadline for incentive program participation. Councilor Adams asked whether this covered all downtown streetlights; staff confirmed it includes all city lights.
• For December, a review of council representation on boards and commissions is planned, and a Shelter First update may be added.
• Councilor Davis reported that a meeting with staff on the Parking Master Plan had occurred, discussing a methodology to objectively determine parking issues—similar to traffic speed studies. Options such as expanding striped parking, education components, and off-street resources were considered. There was also discussion about whether council should retain authority over parking decisions outside the existing parking district. Councilor Davis mentioned that Clatsop Community College has offered to use drones for parking counts (subject to FAA restrictions), similar to work they did for Cannon Beach in 2019.

Astoria Municipal Code Review – Proposed Amendments

Staff presented administrative and policy-level amendments across several chapters.

Administrative Changes (Chapters 1, 2, 5, and licensing sections):

• Chapter 1: Increase department head spending authority from $7,500 to $10,000 (staff noted 59 purchases between $7,500 and $10,000 in the current fiscal year). Increase the small procurement cap from $10,000 to $25,000 to align with ORS and improve efficiency (76 intermediate procurements identified in FY 26-27). Councilor Adams questioned why intermediate procurements ($150,000 cap) were not also updated by reference; staff explained the city's large procurement threshold of $150,000 was deemed appropriate.
• Chapter 2: Update driveway permit language: replace the specific fee ($5) and title with a reference to the public works department and right-of-way permits. Move approval of driveway exceptions (outside standard dimensions) from council to administrative approval, given council's past preference. Councilor Adams noted that an appeal process exists for administrative decisions.
• Chapter 5: Update Parks definitions to remove outdated references (e.g., library director) and replace the exhaustive list of parks with a reference to the Parks Master Plan list.
• Licensing Sections: Repeal several outdated license categories: amusement devices (pinball), amusement places (carnivals), general licensing for boxing/wrestling/dances (“Footloose provision”), junkyards, security guards, drive-in restaurants, outdoor advertising, and auctioneers. For pawnbrokers, staff will retain the section due to existing pawn shops in the city, with clarified definitions.

Policy-Level Discussions:

• Liquor Control (Section 5.030): Staff proposed making liquor license approvals/denials an administrative process rather than requiring council action, to speed up processing. Councilor Davis noted that even though liquor license renewals typically pass consent easily, a small number of residents have expressed concerns about over-approval. He suggested polling for public input occasionally. Councilor Adams preferred keeping applications on the consent calendar to maintain awareness. Chief Kelly and City Manager Spence stated there have been few public complaints; the main issue is delays when council scheduling is missed.
• Parks Enforcement (Ejectment): Staff proposed establishing a clear appeal process for park ejectments, setting a standard 90-day maximum, and removing the code section allowing property seizure. Appeals would go first to the Parks Director, then to the Municipal Judge. The change aims to provide due process and consistency. Councilor Adams noted a typo on the time frame slide, suggesting flexibility up to 90 days. Staff clarified the 90-day standard removes police officer discretion.
• General Occupation Tax to Business License: Staff proposed a full replacement of the general occupation tax with a business license program. This would be a community-driven process over several months: stakeholder outreach (Nov–Feb), work session (March 2027), potential council proposal (April), additional outreach (May–June), and program launch July 1, 2027. The change would modernize administration, improve data on businesses, and be revenue-neutral. Councilor Adams requested a breakdown of fee methodology (small/medium/large based on employees or revenue). Councilor Mazzarella asked about overlap with existing licenses (e.g., home-stay lodging); staff said that would be discussed during stakeholder engagement.
• Right-of-Way Licensing: Staff discussed moving from individual franchise agreements to a standard license for utilities operating in the right-of-way, following a League of Oregon Cities model. This would streamline negotiations and ensure consistent terms. Councilor Davis expressed concern that providers might refuse if not offered negotiation room, but City Attorney and staff noted that the model is standard and would likely be accepted by utilities like Pacific Power and Northwest Natural Gas, which have been operating on expired agreements for years. This item will be the subject of a future work session.

Astoria's Shelter First Policy Update

Staff, Chief Kelly, Homeless Liaison Nicholas, and representatives from partner agencies provided a comprehensive update on the four pillars of the policy.

Camping Code Enforcement (since July 15, 2026):

• Statistics: 7 citations, 31 trespasses, 0 arrests. Chief Kelly reported an initial decrease in visible camping as people entered shelter, but a recent resurgence as some left shelter or returned from elsewhere. He noted that enforcement has moved to a more resistant group and that communication with shelters (e.g., CCA) has improved to verify available beds.
• Councilor Adams asked about the number of tents; Chief Kelly said he has started tracking tent counts three mornings per week.
• Councilor Adams inquired about bed availability for those claiming ADA needs or who have been trespassed from shelters. Chief Kelly explained that shelters have bottom bunks and accessible bathrooms, so most ADA concerns are resolved; some individuals refuse shelter even when beds are available, leading to trespasses. A current shortage of men's beds was noted.
• Councilor Adams asked whether the trespass authority is effective. Chief Kelly said it is a useful tool; individuals generally leave rather than face arrest.

Homeless Liaison (Nicholas):

• The position was filled and began work; the first monthly report for September was provided in the packet. Nicholas described his daily work: outreach downtown, case management, helping with IDs, health insurance (OHP), connecting people to treatment and deflection programs. He uses Lifeboat's day shelter as a location for meetings. Councilor Adams asked about the need for a private space; Nicholas mentioned using Lifeboat's private rooms and also the library through liaison Suzanne. Councilor Mazarella noted the importance of having city-owned space for that purpose.
• Councilor Conklin asked about deflection drug treatment; Nicholas confirmed that anyone can access the program through CBH (RAC) at no cost, not just those arrested. The program has one of the highest success rates in the state.

Dry Storage Assistance Program:

• Six locker boxes (providing 12 storage spaces) have been installed near the library; all six are currently assigned. Staff learned of water intrusion due to open bottoms and are exploring mitigation. There has been one arrest for storing illegal items (cameras from the library identified the issue). The program has been well-received by users, who are able to attend appointments without carrying all belongings. Nicholas reported some users are unable to store bicycles or wagons. Next steps: a check-in in November, ordering three additional boxes (two-month lead time) for installation in February 2027.

Community-Based Shelter Program:

• Staff identified 9 potential partner locations (nonprofits and faith-based organizations) and have reached out; responses include some no's and maybes. Councilor Davis offered to help with outreach to property owners. Councilor Adams shared a list for follow-up.

Countywide Partnerships:

• Staff presented regional data on shelter beds. As of September 2026, Clatsop County has 218 shelter beds: Astoria provides 150 (68.8%), Seaside 52, and 16 non-disclosed (domestic violence). Astoria's 110 low-barrier beds make up 73.3% of all low-barrier beds in the county; its 40 recovery beds are 76.9% of the county total. Astoria has approximately 1 shelter bed per 67 residents.
• Monthly utilization for September: average 95.9% of low-barrier beds occupied, with 4.5% average nightly availability (1.2 female, 0.8 male, 1.5 young female, 1.0 young male beds).
• Staff emphasized that the city is doing a disproportionate share and called for a regional dialogue. Next steps include a countywide elected officials meeting and possibly council representation on the Oregon Continuum of Care policy board.
• Councilor Adams requested data on drug use enforcement. Chief Kelly reported several recent drug arrests (including fentanyl possession and dealing paraphernalia) and an assault between homeless individuals. He noted that state law (SB 48) and bail reform make it difficult to hold individuals for treatment; he suggested adding bail reform to legislative priorities.

Emergency Cold Weather Shelter Discussion:

• Councilor Davis raised the topic of contracting for a warming shelter this winter. City Manager Spence summarized past usage: 4 days in 2024, 7 days in 2025, 4 days in 2026, averaging about $1,600 per night (contract with CCA via Consejo). Often only 3–4 people stayed each night.
• Council discussed whether to fund another year. Councilors Conklin, Adams, and Davis expressed support for one final year, with a clear signal that the city would not continue thereafter. Councilor Mazzarella and Mayor Fitzpatrick expressed reluctance, preferring to use funds for sustainable programs and to challenge neighboring jurisdictions to step up.
• Consensus: Council directed staff to first conduct outreach to neighboring cities (e.g., Warrenton) and local nonprofits (e.g., Lifeboat) to see if they can operate an inclement weather shelter (broader than just 32°F). If no partner steps forward, staff may prepare a limited emergency cold weather shelter for the winter of 2026-2027 (likely 5–7 days at $10,000–$12,000 budget), with the understanding that this would be the city's final year of direct operation. Council also asked to explore whether Lifeboat could offer emergency shelter with funding.

Key Outcomes

• Staff will bring the administrative code amendments (Chapters 1, 2, 5, and licensing repeals) to council for public hearings and first readings on November 2, November 16, and December 7, 2026, as scheduled.
• Policy-level items (liquor license administrative process, parks enforcement, general occupation tax replacement, right-of-way licensing) will proceed to future meetings with further council input.
• Staff will coordinate with council members on community outreach regarding the community-based shelter program and emergency cold weather shelter partnerships.
• Council directed staff to prepare for a possible final-year emergency cold weather shelter (contingent on unsuccessful outreach) and to report back on partnership progress.
• The Shelter First Policy will continue to be monitored; monthly reports from the Homeless Liaison will be provided to council.