Regular 3.
City Council Regular Business Meeting
- Meeting Date:
- 01/26/2026
- TITLE
- Amendment to YWCA Contract for Northern Lights Family Justice Center funding
- PRESENTED BY:
- Gina Dahl
- Department:
- Legal
Presentation:
No
Legal Review:
Yes
Project Number:
N/A
RECOMMENDATION
Staff recommends Council approve the amendments to the agreement with the YWCA.
EXECUTIVE SUMMARY
Since early 2023, the City has supported development of a Family Justice Center (FJC) through initial research by an AmeriCorps VISTA volunteer and a community readiness assessment by the Family Justice Center Alliance, which produced strategic recommendations for serving Yellowstone County. The City subsequently partnered with the YWCA to launch and sustain the FJC, appropriating $200,000 in FY 2024 and approving continued funding of $200,000 in FY 2025 and FY 2026, with future funding tied to the value of a mill (currently ~$230K). The FJC is now housed on the YWCA campus - see attached FJC Impact Report. City funding enabled the FJC to hire staff, support coordinated service delivery, basic needs assistance, partner training, and outreach, while also assisting with a portion of operational costs. After nearly two years of operation, on-site partners have refined governance structure, staffing, and facility needs, determining that existing YWCA space is sufficient, that a separate LLC structure and building remodel are unnecessary, and that resources should be prioritized for direct services rather than additional administrative positions. The proposed amendments to the agreement reflect the established operations while maintaining collaboration and responsible use of City resources.
BACKGROUND (Consistency with Adopted Plans and Policies, if applicable)
In February 2023, the City began hosting an AmeriCorps VISTA volunteer to serve for one year to research the funding and planning process of an FJC as well as network with community partner agencies and to evaluate community support for the concept. In June 2023, the City contracted with the Family Justice Center Alliance (“Alliance”) to assess community readiness for and assist in the development of an FJC to serve victims of domestic violence and sexual assault and their children. The Alliance provided a strategic planning report which included several recommendations to move forward with planning an FJC to serve Yellowstone County.
In December 2023, the City agreed to partner with YWCA to provide funding assistance to hire a full-time position to coordinate the planning for an FJC in Billings. That agreement provided $55,000 annually to the YWCA. Council later appropriated $200,000 for fiscal year 2024 from the crime prevention fund to launch the FJC. In July 2024, a new agreement was approved by Council to memorialize the FY 24 contribution and to replace the December 2023 agreement and provide $200,000 in FY 2025 and FY 2026. In FY 2027, the contribution will be "not less than" the value of one (1) mill to the FJC. The YWCA currently houses the FJC on its campus. The attached FJC Impact Report describes the accomplishments so far.
Northern Lights utilized the investment from the City of Billings to hire personnel to coordinate the continued implementation and growth of the FJC. In addition, a full-time Services Navigator was hired. The Services Navigator is responsible for conducting intakes with all guests at Northern Lights to include collection of demographic data and victimization data, and an evidence-based risk assessment. After intake, the Services Navigator works with the guest to develop a personalized safety plan and service plan. The Services Navigator serves as a liaison between the guest and the on- and off-site partners the guest receives services from. Additionally, a portion of the office and occupancy supplies for YWCA is covered by this funding to accommodate on-site partners working in the building and the increase in guests using services in the building. Northern Lights also hosted a soft-opening event in July 2024, inviting the community to tour and learn about the project. The City's contribution also assisted with printing of business cards and outreach brochures. This funding also assisted with registration fees and travel expenses for five Northern Lights partners to attend the annual Alliance for HOPE Annual Conference. A computer was purchased for the Services Navigator. Additionally, funds provide assistance with basic needs for Northern Lights guests. Examples include cell phones/phone cards that abusers don’t have access to, transportation assistance (bus passes, Uber rides, gas cards), child care during court hearings or meetings with partner agencies, and other needs related to safety. Funding also assists with a portion of the indirect costs of operation being paid by YWCA, for example, annual audit and tax return filing, insurance, administrative and bookkeeping support, internet and utilities, office space, and meeting space.
This Amendment to the original Agreement is proposed to reflect the current state of the FJC. The initial contract was based on what the YWCA and City believed would be the best governance and best facilities structures. After being fully operational for nearly two years, the on-site partners who make up the FJC have refined operations and have a better understanding of governance, facility, and personnel needs.
The current on-site partners include two DV Investigators from the Billings Police Department, victim-witness specialists from the City and County Attorney’s Offices, prosecutors from the City Attorney’s Office, Job services, and MSU’s Trio Student Support Services education program. Those resources are in addition to previously existing YWCA services, including housing navigation, civil legal assistance, advocacy/case management, and emergency shelter. All on-site service providers operate within the YWCA administration building. While the existing contract contemplated remodeling the vacant building on the YWCA campus, the YWCA and on-site partners foresee that a remodel will serve no purpose at this time, other than necessitating a second receptionist and encumbering a significant capital expense. Currently, the administration building can accommodate all existing on-site partners and has available space to accommodate additional on-site services as the FJC continues to increase and expand services. The current on-site partners have sufficient workspace, and multi-disciplinary office locations facilitate easy communication, collaboration, and service provision. The partners and their respective clients also receive the benefit of the administrative services provided by the YWCA receptionist.
The initial contract required the creation and registration of “Northern Lights FJC, LLC,” as a subsidiary under the YWCA Billings. Upon further evaluation and consultation with the Alliance, it has been determined that the LLC governance body would merely create an additional layer of costs and administrative requirements without delegating any decision-making authority related to FJC operations. The YWCA Board of Directors would retain ultimate decision-making power over the FJC. The LLC and any related governing board would act in an advisory capacity only. An FJC Advisory Committee currently exists and includes on- and off-site partners who help inform the direction of the FJC. City staff working on-site will maintain the City’s interests in FJC operations, and concerns over operations can be addressed by respective City department heads. Therefore, subsection 4.a. should be deleted from the Agreement.
Additional revisions are proposed based on current experience with FJC operations, which have provided insight into the additional personnel and associated programming necessary for effective services. When service needs and applicable funding sources arise, the YWCA will be responsible for hiring and staffing those positions. The preferred option is to pursue partnerships with existing service providers to fill gaps in services.
Similarly, the YWCA respects the goal of maintaining a low administration to service provision cost ratio. With the FJC moving out of development and into full operations, the number and frequency of development committee meetings is reduced. By necessity, program expansion is strategic and thoughtful, rather than a rapid attempt to amass as many programs as possible. Because of these changes, the YWCA and on-site partners do not see a need to fill the FJC Coordinator position. Funds allocated towards that administrative position are better spent towards service provision, as victims and survivors (FJC Guests) receive the benefits of wrap-around services. The YWCA intends to hire a full-time FJC Director in the near future.
The YWCA believes these amendments maintain the collaborative spirit while being responsible and strategic with City resources.
In December 2023, the City agreed to partner with YWCA to provide funding assistance to hire a full-time position to coordinate the planning for an FJC in Billings. That agreement provided $55,000 annually to the YWCA. Council later appropriated $200,000 for fiscal year 2024 from the crime prevention fund to launch the FJC. In July 2024, a new agreement was approved by Council to memorialize the FY 24 contribution and to replace the December 2023 agreement and provide $200,000 in FY 2025 and FY 2026. In FY 2027, the contribution will be "not less than" the value of one (1) mill to the FJC. The YWCA currently houses the FJC on its campus. The attached FJC Impact Report describes the accomplishments so far.
Northern Lights utilized the investment from the City of Billings to hire personnel to coordinate the continued implementation and growth of the FJC. In addition, a full-time Services Navigator was hired. The Services Navigator is responsible for conducting intakes with all guests at Northern Lights to include collection of demographic data and victimization data, and an evidence-based risk assessment. After intake, the Services Navigator works with the guest to develop a personalized safety plan and service plan. The Services Navigator serves as a liaison between the guest and the on- and off-site partners the guest receives services from. Additionally, a portion of the office and occupancy supplies for YWCA is covered by this funding to accommodate on-site partners working in the building and the increase in guests using services in the building. Northern Lights also hosted a soft-opening event in July 2024, inviting the community to tour and learn about the project. The City's contribution also assisted with printing of business cards and outreach brochures. This funding also assisted with registration fees and travel expenses for five Northern Lights partners to attend the annual Alliance for HOPE Annual Conference. A computer was purchased for the Services Navigator. Additionally, funds provide assistance with basic needs for Northern Lights guests. Examples include cell phones/phone cards that abusers don’t have access to, transportation assistance (bus passes, Uber rides, gas cards), child care during court hearings or meetings with partner agencies, and other needs related to safety. Funding also assists with a portion of the indirect costs of operation being paid by YWCA, for example, annual audit and tax return filing, insurance, administrative and bookkeeping support, internet and utilities, office space, and meeting space.
This Amendment to the original Agreement is proposed to reflect the current state of the FJC. The initial contract was based on what the YWCA and City believed would be the best governance and best facilities structures. After being fully operational for nearly two years, the on-site partners who make up the FJC have refined operations and have a better understanding of governance, facility, and personnel needs.
The current on-site partners include two DV Investigators from the Billings Police Department, victim-witness specialists from the City and County Attorney’s Offices, prosecutors from the City Attorney’s Office, Job services, and MSU’s Trio Student Support Services education program. Those resources are in addition to previously existing YWCA services, including housing navigation, civil legal assistance, advocacy/case management, and emergency shelter. All on-site service providers operate within the YWCA administration building. While the existing contract contemplated remodeling the vacant building on the YWCA campus, the YWCA and on-site partners foresee that a remodel will serve no purpose at this time, other than necessitating a second receptionist and encumbering a significant capital expense. Currently, the administration building can accommodate all existing on-site partners and has available space to accommodate additional on-site services as the FJC continues to increase and expand services. The current on-site partners have sufficient workspace, and multi-disciplinary office locations facilitate easy communication, collaboration, and service provision. The partners and their respective clients also receive the benefit of the administrative services provided by the YWCA receptionist.
The initial contract required the creation and registration of “Northern Lights FJC, LLC,” as a subsidiary under the YWCA Billings. Upon further evaluation and consultation with the Alliance, it has been determined that the LLC governance body would merely create an additional layer of costs and administrative requirements without delegating any decision-making authority related to FJC operations. The YWCA Board of Directors would retain ultimate decision-making power over the FJC. The LLC and any related governing board would act in an advisory capacity only. An FJC Advisory Committee currently exists and includes on- and off-site partners who help inform the direction of the FJC. City staff working on-site will maintain the City’s interests in FJC operations, and concerns over operations can be addressed by respective City department heads. Therefore, subsection 4.a. should be deleted from the Agreement.
Additional revisions are proposed based on current experience with FJC operations, which have provided insight into the additional personnel and associated programming necessary for effective services. When service needs and applicable funding sources arise, the YWCA will be responsible for hiring and staffing those positions. The preferred option is to pursue partnerships with existing service providers to fill gaps in services.
Similarly, the YWCA respects the goal of maintaining a low administration to service provision cost ratio. With the FJC moving out of development and into full operations, the number and frequency of development committee meetings is reduced. By necessity, program expansion is strategic and thoughtful, rather than a rapid attempt to amass as many programs as possible. Because of these changes, the YWCA and on-site partners do not see a need to fill the FJC Coordinator position. Funds allocated towards that administrative position are better spent towards service provision, as victims and survivors (FJC Guests) receive the benefits of wrap-around services. The YWCA intends to hire a full-time FJC Director in the near future.
The YWCA believes these amendments maintain the collaborative spirit while being responsible and strategic with City resources.
FISCAL EFFECTS
$200,000 was provided to the Northern Lights Family Justice Center in FY 2025. In FY 2026, $200,000 will be provided in two distributions (1st Half in July and the second half in December). In FY 2027, the contribution to the FJC will be "not less than" the value of one (1) mill. Currently, the value of a mill is $232,848.
STAKEHOLDERS
ALTERNATIVES
City Council may:
- Approve; or,
- Not Approve