HomeMy WebLinkAboutMINUTES - 01011972 - Allied Services Act 1972 1
ALLIED SERVICES ACT OF :2972 ,REEL`S PQSZmZo�*�
1972=1976
STORED:
HOC ,,,-
In the Board of Supervisors
of
Contra Costa County, State of California
December 21 , 19 76
In the Matter of
Government Operations Committee
Recommendation with respect to
Allied Services Commission
Final Report.
The Board on November 23, 1976 having referred to the
Government Operations Committee (Supervisors A. M. Dias and
E. A. Linscheid) the Final Report of the Allied Services
Commission; and
The Committee having this day reported that because
of the long range policy implications it recommends that the
Allied Services Commission Final Report be referred to the full
Board for consideration in 1977;
IT IS BY THE BOARD ORDERED that the recommendationso =.
the Government Operations Committee is APPROVED.
PASSED by the Board on December 21, 1976.
I hereby certify that the foregoing Is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc• Committee Members Witness my hand and the Seal of the Board of
Director, Human Supervisors
Resources Agency affixed this 21stday of December . 19 76
County Administrator
Public Information
Officer J. R. OLSSON, Clerk
By ",J C /'!y , Deputy Clerk
Helen C. Marshall
H-24 3/76 Ism
The Board of Su pervi sM Contra 0 cChhaai l`rn ao"'"y
Costa
James R.ol�
County Administration Building County Clerk and
P.O.Box 91i �� Chief Clark
Officio Clerks the Board
Martinez,California 94553 Cl a k R"" I�
Chief '
James P.Kenny-Richmond (415)372-2371
1st District
Alfred M.Dias-EI Sobrante
2nd District
James E.Moriarty-Lafayette
3rd District
Warren N.Boggess-Concord �-
4th District RECEIVED
Edmund A.Linschsid-Pittsburg
5th District t
December 15, 1976 D E C ;; 1 1976
REPORT J. R. OLSSOfd
�
OF
CLERK BOAP.t7 OF SUPERVISOR$' co.
v t GOVERNMENT OPERATIONS COMMITTEE Br•• ' NrRA Cosy
ON
OUTSTANDING COMMITTEE REFERRAL
The Government Operations Committee recommends that
because of the long-range policy implications the following
item be referred to the new Board for consideration during
1977: incconjunction with proposal for a comprehensive human
services planning and decision-making process:
ITEM REFERRAL DATE
Allied Services Commission November 23, 1976
Final Report
. . `�. Dias E. A. Lins c eid
Su r Dist t II Supervisor, District V
Miuofilmed wifh 1)oar7d order
y�4
CONTRA COSTA COUNTY
Government Operations
TO. Com1nittee6q_fn.L7,tA5ga4 ATE December 16 2 1976"a'
--Trial Report of Allied
FROMClerk of the Board SUBJECTBervices Commission
by Geraldine Fussell, Chief Clerk J' ---
The subject matter in the attached was
inadvertently omitted from the December 7
Government operations Committee report
which referred all outstanding referrals
to the full Board for consideration in
1977.
=j I suggest you recommend this item for
referral to the full Board as well.
- SIGNED
PLEASE REPLY HERE µ'
TO DATE w*s
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SIGNED -
INSTRUCTIONS - FILL IN TOP PORTION. REMOVE DUPLICATE (YELLOW) AND'FOR-
WARD REMAINING PARTS WITH CARBONS. TO REPLY, FILL IN LOWER PORTION AND
SNAP OUT CARBONS. RETAIN TRIPLICATE (PINK) AND RETURN ORIGINAL.
roRM M103
In the Board of Supervisors
of
Contra Costa County, State of California
December 7 , 19 76
In the Matter of
Report of Government
Operations Committee
on Outstanding Referrals.
Supervisor A. M. Dias, Chairman of the-Government
Operations Committee (Supervisor E. A. Linscheid, member)
having this day advised the Board that the Committee has ..•
reviewed. the•t•following referrals
Referral
Date Item' -
2/3/76 Matter of negotiations between Contra Costa
County Water District and East Bay Municipal
Utility District for the purpose of obtaining
East Bay water for County Water District
users;
5/11/76 Proposal for a campaign finance ordinance;
5/25176 Proposed procedure for selecting persons for
appointment to various boards and commissions;
7/6/76 Proposal for a comprehensive human services
8/10/76 planning and decision-making process; and
Supervisor Dias having recommended that, because of
their long-range implications, these items be referred to the
full Board for consideration during 1977;
IT IS BY THE BOARD ORDERED that the recommendation
of Supervisor Dias is APPROVED.
PASSED by the Board on December 7, 1976.
1 hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the dote aforesaid.
cc• Board Committee Wfnm my hand and the Seal of t1wBfwdof
Public Works Director Supervisors
Environmental Control affixed this 7th day of December 19 76
League of Women. Voters of
Diablo Valley J. R. OLSSON, Clerk
Public Information Officer
Director, Human Resources By 2:�� �4 Deputy Clerk
Agency Mar razg
Director, Allied Services
Project
Chairman, Feasibility Study
Committee
H.,4 3/-gWty Administrator
In the Board of Supervisors
of
Contra Costa County, State of California
November 23 , 19 76
In the Matter of
Acceptance of Final Report on the
Allied Services Project.
The Director, Human Resources Agency, having submitted to the
Board on this date the final report of the Allied Services Commission on the
Allied Services Project under entitlement grant #12-P-55888/9-03, which Project
terminated on June 30, 1976; and
The Board having received in conjunction with this final report the
report of the Allied Services Commission's Legislative Task Force on this
Project;
IT IS BY THE BOARD ORDERED that the aforementioned reports are
HEREBY ACCEPTED, and said reports are referred to the Director, Human Resources
Agency, for analysis and subsequent report, and the Director, Human Resources
Agency, is AUTHORIZED to transmit copies of the final report to the Department
of Health, Education and Welfare, the State Department of Health, Project Share,
and other appropriate individuals or groups, as recommended by the Chairman of
the Allied Services Commission in submitting this report to the Board.
IT IS BY THE BOARD FURTHER ORDERED that the recommendations of the
Allied Services Commission and the aforementioned reports are HEREBY REFERRED
to the Government Operations Committee for consideration at the same time
as that Committee studies the report of the Feasibility Study Committee.
IT IS FURTHER ORDERED that the Board of Supervisors HEREBY AUTHORIZES
the issuance of Certificates of Appreciation to the 26 members and alternates of
the Allied Services Commission in grateful acknowledgment of their outstanding
work and assistance over the past several years in carrying out the mandate of
the Design of the Pre-Test of the Allied Services Act of 1972.
PASSED BY THE BOARD ON November 23 , 1976.
s.
1 hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
Witness my hand and the Seal of the Board of
Supervisors
affixed this 2 3rdday of November 19 76
J. R. OLSSON, Clerk
Orig: Human Resources Agency gy ,J Deputy Clerk
Dept. of HEW obbie qgyXerrez
State Dept. of health
Project Share
Allied Services Commission
County Auditor
H-24 3/76Aunty Administrator
Hunan R.esAkes Agency •
Date November 16, 1976 CONTRA COSTA COUNTY
To Board of Supervisors RECEIVED
From C. L. rWorNOV 17 1976
J. R. OiSSON
Subj FINAL REPORT OF THE ALLIED SERVICES COMMISSION CLERK BOARD OF SUPERVISORS
oNr TA CO.
By
M_....Dputy
e
The Allied Services Commission has completed their report on the Allied
Services Project and have asked me to file their report with your Board.
You will note in the transmittal letter from Dr. Blackburn-Wilson that
the Commission has made several recommendations for consideration by your
Board. I would recommend that you take the following actions with this
report and their Legislative Task Force Report, which is included as an
addendum to the Commission's report:
1. Acknowledge receipt of both reports.
2. Refer both reports to the Director, Human Resources Agency,
for an analysis and subsequent report on the Commission's
recommendations.
3. Approve the Commission's first recommendation to authorize me
to transmit copies of the report to the Department of Health,
Education and Welfare, the State Department of Health,
Project Share, and other appropriate individuals or groups.
4. Request that this matter be referred to the 1977 Government
Operations Committee for consideration in conjunction with
the report of the Feasibility Study Committee which is already
before that Committee of your Board. I would then make my
report on the Commission's recommendations to the 1977
Government Operations Committee at the time they consider the
Feasibility Study Committee report.
5. Thank the Allied Services Commission for their work on this
report and for their support and assistance throughout the
life of the Allied Services Project.
CLVM:clg
Attachments
cc: A. G. Will , County Administrator
Geraldine Russell , Chief Clerk of the Board
Warringtoo Stokes, Human Resources Planning
ALLIE ERVICE
COMMISSION
FINAL REPORT
1�.ECEIVE
J. R. OLSbON
VVV CLERK BOARD OF SUPERVISORS
NTRA S A CO.
B ......
SEPTEMBER
=976
Nlicro'rilmed with board order
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ALLIED SERVICES COMMISSION
FINAL REPORT
SUBMITTED TO:
The Contra Costa County
Board of Supervisors
Martinez, California 94553
Develop'ed'.Under The Allied Services
�.
Project Grant (No: 12-P=55888/0-02) `
Awarded.By.The U.S. Department of
Health, Education, and Welfare
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,DR, MARY L_ _ ,LACKBURN-WILSON
< CHAPERSON
14 SEPTEMBER 1976
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TO: CONTRA COSTA COUNTY September, 1976
BOARD OF SUPERVISORS
. SUBJECT: The Allied Services Commission Final Report
The Allied Services Commission respectfully submits its final report of
activities to the Contra Costa County Baord of Supervisors for review and
subsequent action. The content herein were derived by working/associating
with many individuals in Contra Costa County who were personally involved
in human services delivery. The Commission encountered a variety of ex-
periences with the personal philosophies of administrators and staff in the
various agencies and therefore has a better appreciation for interdisciplinary
concerns for human services. The participation of Staff in the formulation of
the Allied Services philosophies and concepts was considered by many to be
something of a rare vintage but was perceived by others as an added responsibility.
The Allied Services Commission sought to bring to the human services delivery
system of Contra Costa County the desires and the strengths of the community at
large to assure that the community was the ultimate beneficiary of the activities
of that system. Its members worked with Project staff, the Allied Services Board,
and other groups and individuals in a fervent attempt to initiate.dialogue and
actions to facilitate human services integration among the major agencies in-
volved in human services delivery.
The members of the Commission wish to acknowledge those individuals who
contributed to this effort. The citizens who participated on the Commission and
the Task Forces provided a very special kind of interpersonal interaction and
• dialogue and demonstrated a level of competence and commitment unsurpassed
by any group--voluntary, paid, or otherwise. The Chair expressed sincere
appreciation for this once-in-a-life-time opportunity to serve such a magnificant
group of concerned citizens. Special notice is taken of the outstanding staff
support provided by the Allied Services Project staff, -a vital element in the work
of the Commission.
THE ALLIED SERVICES COMMISSION THEREFORE RECOMMENDS TO THE CONTRA
COSTA COUNTY BOARD OF SUPERVISORS THAT:
1, The Allied Services Commission Final Report, with the Legislative
Task Force Report as an addendum, be transmitted to the following agencies:
- The Department of Health, Education and Welfare
Washington, D.C .
- The State Department of Health
Sacramento, California
- Project SHARE
Rockville, Maryland
2. The Board of Supervisors devise means to explore possible resolutions
to the various problems and issues presented in this report, i.e. the authority/
power struggle between departments/divisions, as an alternative to a wringing of
the hands in silent anguish, and subsequently leaving this report to "collect dust".
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Contra Costa County
Board of Supervisors
Page Two
3. The Board of Supervisors develop a plan which will include the same kind
of citizenry and the like on an ongoing basis to provide input to the Board on human
services delivery matters crucial to the Contra Costa County client community.
4. The experience of the Allied Services Commission be utilized by the appro-
priate individual bodies/groups in the establishment of a longterm human services
planning mechanism to:
a. Ensure maximum coordinatiaon between all pertinent elements in faci-
litating access to, and improving the effectiveness of, all the human services;
b. Assure accountability of the providers of these services to the
consumers in the County;
c. Enhance utilization efficiency of human services resources;
d. Assure maximum participation of the citizens of the county in the
identification of needs and in continuing evaluation of the human service
delivery system so as to achieve maximum personal independence, dignity,
protection, and economic self-sufficiency and the physical, social, and
mental wellbeing of individuals and families through the establishment of an
effective and efficient human service program.
5. The Allied Services Board examine its experiences and make a final
report to the Board of Supervisors as a contrasting experience in the same service
integration dilemma.
6. A debriefing session be held between members of the Commission and
within 30-45 days of the Allied Services Board.
7. A formal, oral report of the experiences of the Commission be made to
the Board of Supervisors by the Chairperson of the Commission.
8. Further, the Commission hopes the dedication and services of its members
will not have been in vain.
Respectfully submitted,
**loom
Dr. Mary L. Blac urn-Wilson
Commission Chairperson
Members of: Committee to Develop Final Report
Robert Clark Kagey Dorosz
Juanita LaBeaux Frances McDaniels
Tubby Snodgrass Isaiah Winn
Eddie Harrison Mary Blackburn-Wilson
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TABLE OF CONTENTS
ACKNOWLEDGMENTS 0 RECOMMENDATIONS Page No.
COMMISSION ORIENTATION
(April - May 1973)
• 1
SOCIAL PROBLEM SELECTION
(May - June 1973)
FINAL SOCIAL PROBLEM SELECTION 3
(June 1973)
4
FORMAL DEFINITION OF COMMISSION PURPOSE
AND PROCEDURES (June 1973 - June 1974)
7 ,
TASK FORCE DELIBERATIONS AND RECOMMENDATIONS
(June - October 1973)
8
A. Substance Abuse Task Force
B. Child Care Task Force 8
C• Services to the Elderly 10
D. Career Education it
E. Legislative Task Force 12
14
THE FEASIBILITY TEAM PROCESS
15
• A. Implementation Plan 1: Early Case-Finding Pilot
Program
B. Implementation Plan 2: Alcohol Advisory Council 15
C • Implementation Plan 3-4-5: Local Detoxification 15
D. Implementation Plan 6: Conservatorship 16 '
E. Implementation Plan 7: Information-Sharing 18
F•. Implementation Plan 8-9-10: Substance Abuse
Consolidation
G• Implementation Plan 11: Career Education 18
H. Implementation Plan 12: Neighborhood Services 18
Team
I. Implementation Plan 13: Child Development 18
Training
J. Implementation Plan 14: After-School Supervision 21
K. Implementation Plan 15: Child Care Information
Center
L. Implementation Plan 16: Night Immunization 21
M. Implementation Plan 17: Coordination of Related 22
Medical Services by the Health Department and
Social Services
N. Implementation Plan 18: Childrens Council 22
23
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Table of Contents (continued)
Page Two .
Page No.
IMPLEMENTATION AND MONITORING 24
24
A. Early Case-Finding Z5
B. Richmond Alcoholism Advisory Council
C. Local Detoxification 28
26
D. Conservatorship 30
E. Exchange of Information 33
F. Substance Abuse Consolidation
G. Career Education 34
34
H. Neighborhood Services Team 38
I. Child Development Training 40
J. After-School Supervision 43
K. Child Care Information Center
L. Night Immunization 43
43
M. Related Medical Services 48
N. Children's Council
DISPOSITION OF THE CONTRA COSTA COUNTY HUMAN 52
RESOURCES AGENCY (HRA)
Assumption #1: The Human Resources Agency as 52
Integrator of Human Services Programs
Assumption #2: The Human Resources Agency as a 64
Fiscal Agent
Conclusions 54
COMMENTS AND REFLECTIONS 55
Chairperson, Substance Abuse Task Force 55
Chairperson, Career Education Task Force 58
Chairperson, Services to the Elderly Task Force 57
Chairperson, Child Care Task Force 58
Final Evaluation of the Allied Services Project 60
Statement of Objectives 80
APPENDICES
A. Participating Agencies/Groups
B. Members of Task Forces/Committees
C . Allied Services Commission Bylaws
Addendum Legislative Task Force Report
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COMMISSION ORIENTATION
(APRIL - MAY 1973)
. The Contra Costa County Allied Services Commission began its initial meeting
as a group on April 10, 1973, and was officially constituted as a Board of
Supervisors-appointed Body July 1973 - December 1975. This commission was
established to provide a viable mechanism through which the participation of
citizens of the Contra Costa County communities might become an integral part
of the design of a Pretest of the Allied Services Act Project, an activity funded
by the Department of Health, Education and Welfare. (Appendix A)
In the preliminary orientation meetings, potential members of the Commission
were advised by the Human Resources Director that the purpose of the Allied Ser-
vices Project was to integrate the delivery of human services. They were further
advised that the citizens' group (Commission) being organized was to assure
that the system which would result from the study was developed with input from
citizens, the recipients of the services.
The group was told that Contra Costa County was well aware of the fact that its
services Delivery System was not as effective as it could be and that the County
was dedicated to improving the system. Many of the services were fragmented,
and it was often necessary for people seeking services to go to many agencies,
complete duplicate forms and be interviewed by intake workers in each of the
units, where they provided more or less the same information. The experiences
which the County had had in working with the Model Cities project in Richmond
were indicators that it was possible to facilitate cooperation among many agencies
for the purpose of improving services to clients. The County had experienced
good working relationships with community groups via the Model Cities Program
and looked forward to a favorable experience working'with the Commission.
The Assistant City Manager for Community Development, City of Richmond,
pointed out that during the planning stages of the Model Cities Program, the citi-
zens saw the need for integrating various services, particularly Probation, Social
Services, Health and Medical services and other services generally provided by
the County. Because Richmond and Contra Costa County were already working
in the area of service integration, Contra Costa was chosen as one of the few
counties in the Country to test the Allied Services Act. The information which
the Commission and other test sites was to generate would influence the ultimate
outcome of the Bill that was still in Congress. The goal of the project was to try
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Commission Orientation
Page Two
to identify services which the community was interested in and make attempts
. to integrate these services to establish a better system of delivery.
The Commissioners were told that they would supply the citizens input and
would help project planners ensure that the services which citizens were in-
terested in were included and that the priorities which they placed upon them were
established. Also, as recipients of services, their interest relative to how
these services were presently being delivered, and what changes should occur,
would be of great importance. It was stressed to those in attendance that the
job of the Commission would be a long-enduring process, and it would be
necessary for the Commissioners to pledge themselves to work diligently for
those interest groups which they represented. Citizen representatives needed to
make continuous input if the results were to be characteristic of community concerns.
Prior to establishment of the Commission was the development of the Allied
Services Board (January 1973) , which included the heads of agencies partici-
pating in the Allied Services Project process, as well as the Chairperson of the
Commission. The stated relationship of these two bodies was that they would work
together in the decision-making process. Considerable discussion regarding
the purposes and structure of the Board ensued, with questions being raised
• by Commissioners regarding the authority of the Board and/or the Commission.
The response by the Human Resource Agency Director was that in actuality there
was no real authority delegated to either the Board of the Commission. More
importantly, project staff stressed the need for the Commission and the Board to
agree rather than to disagree.
Commissioners were extremely concerned that there was no established
mechanism for problem-solving in the event there was a lack of concurrence be-
tween the two groups. Therefore, the group moved into the initial stage of the
project (establishing priorities for social problems) with, a) skepticism about
the real purpose of the Allied Services Board; b) a.question as to possible
attempts of the Board to exert veto power over the Commission's decisions; c)
uncertainty about the life expectancy of the group; d) concern for the limited
participation of community groups in the project efforts; e) questions about the
ultimate advantage the Allied Services concept was to the people; and f) the
peed to provide compensation to the members of the Commission for their par-
ticipation, as the commitment of time was extraordinary.
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Problem Selection
Page Three
SOCIAL PROBLEM SELECTION
(MAY - NNE 1973)
The Commissioners were presented with a list of 13 social problems
developed by a group of staff people from each of the agencies represented
on the Allied Services Board. (Appendix A) . A planning group, also agency
staff persons, developed constraints and criteria upon which the list of
social problems was developed. (Appendix B) . These constraints and criteria
had been established to limit the number of problems, since the Allied Services
Project could not be expected to take all problems and develop better coordinat-
ing among them. Questions were then raised regarding why a problem would
have to be impacted upon in a two-year period, and the lack of adequate child
care in the model neighborhood area was suggested as an additional study area.
Objections were raised over the fact that there was no mention of the pro-
blems of Spanish-speaking people among the list of problems, and comments were
made to the effect that communication problems of non-English-speaking people
and language communication should be facilitated in every one of the social pro-
blems. Staff stated that one of the problems, (J) , would have to be eliminated
because it did not meet Criteria #3 -- that of two or more Allied Services agencies
being involved. A number of Commissioners expressed objections to Criteria #3,
since they felt that in some instances more agencies should be brought into the
coordination process even though they were not currently involved. It was then
decided that the problem.would be restated to qualify it for consideration: "Lack
of Coordination Between Social Agencies in Treating Family and Community Pro-
blems of Convicted Persons, Both Those Incarcerated and Those on Probation and
Parole."
A number of other problems were proposed;
1. Lack of Coordination of Services for Elderly Citizens in Health,
Medical, Mental Health, and Social Services. . . Because of Transportation
Problems: It was pointed out that this is a problem universal to all people
and that consideration should be given to transportation services for all
areas of the community.
2. Inadequate Social and Financial Services to Welfare Recipients: It was
stated that this problem was too generalized, because inadequate social
services was one of the bases for the Project.
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Problem Selection
Page.Four
3. An addition to Problem B regarding truancy and drop-outs: Child-
ren failing in the Schools Because of Unidentified Physical, Mental
Health, or Neurological Problems.
4. Lack of Assistance to Senior Citizens in Securing an Adequate Diet
- they can Afford,
5. Consumer Protection for the Recipient of Services: This could include
making information about services readily available and the creation of
a board where consumers could make complaints -- i.e. , Ombudsman
service.
The Commission subsequently ranked the social problems in the order of
priority and transmitted the list to the Allied Services Board for review.
1. D-L - Unemployment of Young Males and Lack of Vocational Alternatives
(Elementary Through Adult Levels) to Standard Academic Education
Preparation for Making a Living.
2. M - Lack of Coordination of Health, Medical, Mental Health, and Social
Services to Elderly Persons in One Place and/or Transportation Services.
3. B,N, and P: B - Truancy and Drop-outs: N - Inadequate Social and
Financial Services to Welfare Recipients; P - Consumer Protection for
the Recipient of Services, Including Recourse for the Ineffective Delivery
of Services.
4. A-C and I: A-C - Coping with Drug Abuse and Alcoholism; I - All-Day
Child Care for Working Mothers.
S. H-F-O and K: H-F-O - Lack of Adequate Emotional Health Care to cope
with Family and Personal Instability; the Need for Community Education
Toward Inducing an Awareness of the Necessity for Good Health Practices,
Including Good Nutritional Habits, Preventive Health Care, and Eligibility
for Services; and Adequate Diets that Elderly Persons Can Afford. K -
Lack of Awareness of Resources to Refer Youth to in Pre and Post-Arrest
Situations.
FINAL SOCIAL PROBLEM SELECTION
(NNE 1873)
When the Allied Services Board reviewed the Commission's recommendations, it
chose to delete two of the problem areas the Commissioners felt were most signifi-
cant to the consumers: Inadequate social and financial services to welfare recipients,
and consumer protection for recipients of services, which includes recourse to
ineffective service delivery, The Commission accepted the 4 major problem
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Problem Selection
Page Five
groupings arrived at by the Board and added those two deleted:
1. B-D-L - Truancy and Drop-outs; Unemployment of Young Males;
Lack of Vocational Alternatives (Elementary Through Adult Levels)
to Standard Academic Educational Preparation for Making a Living.
2. M - Lack of Coordination of Health, Medical, Mental Health, and
Social Services to Elderly Persons in One Place and/or Transpor-
tation Services.
3. A-C - Coping with Drug Abuse and Alcoholism.
4. 1 - All-Day Child Care for Working Mothers:
5. N - Inadequate Social and Financial Services to Welfare Clients.
B. P - Consumer/Client Participation.
This action of the Commission represented the first major area where there was
essential disagreement between the two bodies on substantive issues. Subse-
quently. a joint meeting was held between the Board and Executive Committee of
the Commission to resolve these differences. The initial stance of the Board was
the concern for the lack of possible impact over a 2-year period and the need for
additional manpower to staff a Task Force to address the added problem area. on
the other hand, Commissioners felt the staff time required was not remarkable;
rather what was most significant was Task Force Members. (At least 5 commisioners
had already made commitments to work on these issues.)
After considerable dialogue, a Board Member expressed the position he felt
the Board should be taking. He felt the group had to decide whether or not it was
going to call upon people to deal with things as they are, or as they ought to be.
He felt the project was responding to HEW's efforts to try to alleviate the frustra-
tion that existed in terms of the piece-meal way funds are dispersed and the way
services are fragmented. He further stated that the Board included people who
administer a considerable amount of money in those problem areas which were of
concern, and if a citizens' group can identify the problems that are related to a
lack of effectiveness in delivery of these services, the two groups should try to get
together and work on how to solve the problem. This required getting the problem
down to a level that could be dealt with.
Project staff reiterated the importance of remembering what the Project was
charged with: research and development to come up with a feasibility study and
design. Another aspect was the impact on legislation which was seen as a
separate issue, not directed toward the integration of services Another Board
Q
Problem Selection
Page Six
member stated that perhaps there could be several types of assignments for
the N and P "bunch": (1) Assist the Task Forces with evaluation when a
legislative barrier was identified; (2) Work on legislative impediments which
otherwise would not be touched by the other Task Forces; and (3) Address the
broader question of what input there should be at the federal level in terms of s _
the Allied Services Act.
The combined group then agreed that there would be an additional group to
persue the problems of N and P on a ongoing basis (for the life of the Project) on
three levels: (1) Legislative barriers that are identified through the Task Forces;
(2) Other legislative impediments not specifically identified by the Task Forces;
and (3) Input at the federal level to the Act or other major changes. It was further
agreed that there would be staff assigned equivalent to the other Task Forces.
After arriving at a meeting of the minds, a member of the Board stated that
one of the reasons the Board had desired to meet with representatives of the Com-
mission was to provide background on what the Board did when it rejuggled the
problems. The Board wanted the Commission to know that it was not making value
judgements, but it was trying to insure that the Project was not going to be "hung-
up" in working on the problems. As to implementation of the specific recommenda-
tions from the Task Forces, those organizations responsible, such as the School
Board, etc. , still reserved the right not to carry out the recommendations. Staff
replied that the Project had always asked for very highly placed agency persons
to serve on the Project Planning Group in order that they might speak for the
heads of their departments.
A Commissioner expressed the opinion that if the thoughts and decisions of
the Commission were the same as those coming from the Board, then there would be
no need for the Commission. One of the most important things that could happen
was for these two very different bodies to figure out how to work together. Further-
more, the Commission was not necessarily made up of a group of people who did not
have any conception of what an administrator is faced with, but it was a group with
two different levels of expertise, some of which was very sophisticated.
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'Vurpose 0 Procedures
Page seven
FORMAL DEFINITION OF COMMISSION PURPOSE AND PROCEDURES
(JUNE 1973 - JUNE 1974)
Concurrently with the resolution of the selection of social problems to be studied,
the Commission attempted to arrive at a working definition of consumer/community
participation. It further proceeded to establish itself as a body with definite governing
procedures and appointed a Committee to develop a set of By-Laws. Over the
first 12 months of operation, Commissioners worked on the refinement of these
bylaws in addition to their Task Force responsibilities and Monitoring Team
activities. The results of these efforts and a critique of the 1972 Allied Services
Act were presented as part of the testimony of the Human Resources Director be-
fore the House Education and Labor Committee. (Appendix B)
During this definition of purpose, the group first stated what they perceived
to be the working definition of the Project's purpose. It felt the design of a
Pre-Test of the Allied Services Act Project was to reorganize the human service
delivery system of Contra Costa County to: (a) "Ensure maximum coordination
between all pertinent elements in facilitating access to, and to improve the effec-
tiveness of, all the human services; (b) Assure accountability.of the providers
of these services to the consumers of the Project area; (c) Enhance utilization
efficiency of human services resources; and (d) Assure maximum participation
of the Project area in the identification of their needs, and in continuing evaluation
of the human service delivery system, so as to achieve maximum personal inde-
pendence, dignity, protection, economic self-sufficiency, physical, social, and
mental wellbeing of individuals and families through the establishment of an
effective human services program."
The group subsequently defined the purpose of the Allied Services Commission
as "bringing to the human services system the desires and the strengths of the
community at large and working with all service constituents to assure that the
community was the ultimate beneficiary of the activities of that system."
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Task Force Deliberations
Page Eight
TASK FORCE DELIBERATIONS AND RECOMMENDATIONS
(JUNE - OCTOBER 1973)
With the resolution of study problem areas, each Commissioner selected the
particular Task Forces he/she desired to work with. The Task Force phase was
executed between June and October 1973, during which period Commissioners,
expert witnesses and other interested persons presented information data and
made subsequent recommendations in the areas of Child Care, Substance Abuse,
Services to the Elderly, and Career Education. (Appendix C)
In addition to these four social problem oriented Task Forces, a small
committee volunteered to work on the issues of service adequacy, consumer
protection, legislative barriers, etc. This group was eventually described
as the Legislative Task Force Committee and operated on a continuing basis
throughout the life of the project. The findings of this group along with its
recommendations are presented in a Special Report. The recommendation of
the four social problem Task Forces are as follows:
A. Substance Abuse Task Force
After the group completed its problem analysis, 10 recommendations were
presented to the Commission for possible implementation.
1. Early Case Finding: To identify individuals with an alcohol and/or
drug-related problem and provide preventive services at an early stage of
development.
2. Richmond Alcohol Advisory Council: To establish an Alcohol Advisory
Council for the Richmond area.
3. Medical Detoxification Center (Drugs and Alcohol): To provide medi-
cal treatment for drug abusers during their period of withdrawal from drugs
and alcohol.
4. Non-Medical Detoxification Center (Alcohol): To serve as a center for
treatment of alcoholics and for temporary detention of those taken into custody
by the'police for public drunkeness.
5. Residential Treatment Center (Drugs): To provide beds in Richmond
designated for residential treatment of drug abusers.
The Task Force considered the recommendations 3, 4 and 5 for detoxification
and treatment centers as having the highest priority. This need had been ex-
pressed repeatedly by those residents of the Richmond community who were
members of the Task Force.
6. Conservatorship s: For Mental Health and Social Service to jointly develop
a plan to provide Conservators with regular participation in conferences relating to
the client as a hospital patient, and ongoing training from Medical and Mental Health
-
personnel.
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Task Force Deliberations
Page Nine
7. Information Exchange: To facilitate exchange of information among the
participating agencies by making known to each agency what information could be
communicated from one agency to another.
8. Substance Abuse Coordinator: To pull together the fragmented services
provided by agencies serving the needs of alcohol and drug abuse clients (Public
Health, Medical Services, Social Service, and Mental Health) .
9. Consolidation of All Substance Abuse Funds: To consolidate under the
Human Resources Agency all funds for substance abuse programs for Public Health,
Medical Services, Social Services, and Mental Health.
14. Resource Specialist: To maximize the acquisition of federal and state
funds available now or in the future for substance abuse programs.
Commissioners wanted to know the thinking behind the "administration"
of the substance abuse consolidation. Staff responded that the Human Resources
Agency already had an Alcoholism Coordinator and a Drug Abuse Coordinator,
Recommendation #8 proposed a consolidation of these two offices into one.
A Commissioner further stated that the Alcoholism/Drug Abuse Program as it
stood had one program under the Medical Director of the Hospital, another under the
Health Department, and yet another under the Probation Department. He questioned
if this was a plan to centralize all these efforts under one administrative program?
The. Task Force members indicated they were trying to streamline the mechanism with
the idea of coordinating the efforts between the Hospital and the Health Department
to provide continuity of care.
Commissioners also wanted to know if drug abuse centers like Discovery House
were County agencies. The answer was yes, but project staff was uncertain about
just where the funding responsibilities were and.felt that this recommendation
would be one of the toughest to implement because of the variety of funding sources.
Commissioners asked who would have the responsibility for seeking out funds
within the County structure, if this person would be responsible for seeking out
federal funds or state funds in only this specific area of drug abuse and alcoholism,
or whether the Task Force was suggesting further responsibility for this person
under the HRA. Staff said the Grants Unit would probably have expanded res-
ponsibilities.
Commissioners expressed concerns regarding the exchange of information.
They felt there must be some guidelines in terms of how information could be ex-
changed, under what conditions this could be done, what use could be made of the
information, and what the intent of such exchanges would be. It was further stated
41
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Task Force Deliberation
Page Ten
that the Legislative Task Force should work on this problem and recommended
that it might require relaxation of some legal restrictions before information
should flow.
Commissioners debated whether this type of exchange of information might
not constitute an invasion of privacy. Staff responded by saying that it had
become clear to Social Services and Mental Health and Medical Social Services
that there was•a need to develop an information system to provide information
to better serve the client, to show accountability, and to insure fundability.
Examples were given of how the information system might work and how it
could be blocked at certain points from giving out information that would be an
invasion of a client's privacy. Staff pointed out that it was as important for the
staff of the various departments to be very selective in the information that could
be exchanged as it was to the members of the community. It was also stated that
all of these aspects of the issue were being taken into consideration by the people
who were working on the problem. After considerable dialogue on the advantages,
disadvantages, and dangers inherent in an information exchange system, the
recommendations were approved.
B. Child Care Task Force
• This group attempted to define these problem areas in a manner that would be
inclusive of service needs of all needy children as opposed to needs determined
by social or economic conditions of the parent. The group therefore brought
the issue before the Commission for a consensus to call the group the "Child Care
Task Force." After the group completed its deliberations, six major recommenda-
tions were presented to the Commission for possible implementation:
1. Child Development Training: To .develop a career-oriented child
development program as part of the secondary school curriculum of the Richmond
Unified School District.
2. After-School Supervision: The City of Richmond, Richmond Unified
School District, and the Social Service Department would develop a coordinated
service delivery system to provide after-school supervision for older children.
9. ' Child Care Information Center: To provide 24-hour emergency referral
service and up-to-date-in formation concerning all child care resources in the
community, i.a. programs, kinds of services and vacancies.
4. Related Medical Services: To coordinate available medically related
services provided by schools, the Health Department, Medical Services, and the
Social Service Department.
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task Force Deliberations
Page Eleven
5. Night Immunization Clinics: To be held in central locations, with all
the agencies publicizing and cooperating in getting children and adults to
such clinics.
6. Children's Council:* For the schools, Social Service Department, and
Model Cities to involve the community in identifying child care needs and de-
veloping information and coordinating resources, especially focusing on
community needs.
The Commission reviewed and accepted these recommendations with the pro-
vision that special consideration be given to the needs of the handicapped child in
developing the implementation plans for such recommendations.
C. Services to the Elderly
This group discussed the social, economic, and health needs of the elderly
and decided that the elderly were especially vulnerable to isolation and often
only able to look forward to becoming more vulnerable in the face of a bewilder-
ing array of agencies having to deal with the vital parts and needs of their lives.
The elderly therefore needed personal, familiar, and reachable services an a
neighborhood basis. The group subsequently recommended a plan to formulate
a neighborhood services team to coordinate and integrate services in order to
develop a simpler and more personalized approach to meeting the economic health
and social needs of the elderly person.
. The Commissioners questioned what part the "volunteers" would play in the
neighborhood team. It was stated that they would be utilized to cut the cost of
the program and to free professionals to do their jobs instead of having to do a lot
of clerical work. Commissioners asked for further explanation on the issues of
staff turnover and client participation in the advisory committee. It was learned
that there had been a lot of talk that the social workers and the public health
workers are changed so fast that as soon as the elderly got used to them, there
was a complete turnover. The Advisory Committee would include some elderly
people, who would help out and stir up enthusiasm in the neighborhoods. In an-
swer to a question about what specifically they would advise on, it was suggested
that perhaps they would be willing to go around and check to see if there were
elderly people who were not being taken care of.
A Commissioner commented that an Item to be considered should be that of
counseling, since it was among the needs of the elderly. It was also pointed out
that the lack of any provision in the recommendations for reimbursement to the
volunteers (for expenses such as gasoline) would perhaps make it difficult to
recruit volunteers or for them to serve effectively. . It was stated that these
volunteers would be working in their own immediate neighborhoods and should
not have to incur significantexpenses..;
Task Force Deliberation
Page Twelve
The Social Security Administration was at that time moving into Richmond,
4Pand Commissioners felt they ought to be included on the Allied Services Board be-
cause they would be a very strong presence in the area. They also wanted to
know what benefit it would be to the community to have a representative from the y
Social Security Administration on the Board. It was pointed out that an important
reason was the elderly who had been served through Social Services but would
now be served by the Social Security Administration. Commissioners felt it
necessary to establish liaison with the agency so there would be some kind of re-
ferral mechanism to insure that the elderly continue to receive services. It was
moved and carried that someone from the Social Security Administration be asked
to be on the Allied Services Board; it was then moved that the recommendations
on services to the elderly be accepted, and the motion was carried.
D. Career Education
The Task Force presented to the Commission the problems it had encountered
in attempting to deal with the issues of truancy/drop-outs; unemployment of young
persons; and lack of vocational curriculum alternatives. It was noted that the
problem had been redefined as dealing with the unemployment of young persons
rather than being limited to the unemployment of young males, but the group was
unable to deal with the problem as stated, since it was attempting to deal with too
many issues at once. The Task Force requested the Commission to give it direction
as to what to leave out or how otherwise to deal with the problem. It was further
expressed that there was difficulty with some of the Task Force members because
of their different areas of expertise. Consequently, some desired to take off in one
direction while others wanted to go in another, which made it impossible to arrive
at a consensus.
Another problem they had encountered was that of lay persons on the Task
Force feeling somewhat overwhelmed, both in numbers and in level of expertise,
by the agency people involved on the Task Force. Staff interjected that oral reports
from at least two of the agency members of the Task Force (both of whom were
very knowledgeable and articulate as to their own aspects of the problem) did not
indicate they were trying to push their own avenues of expertise on the Task Force
as the way to go; they were merely saying, in effect, "Help us to solve this
dilemma." A Commissioner, on the other hand, stated that there seemed to be an
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Task Force Deliberation
Page Thirteen
abundance of experts and authorities on the Task Force, making the lay members
from the community feel outnumbered and overwhelmed.
Staff indicated that it had been anticipated that everyone would attend the
Task Forces, and the fact that a number of the Commission members were not
attending made for the unequal division. The system was set up in a manner that
would have provided for equal representation from both the agencies and the com-
munity, with each Task Force member having equal power. One Commissioner
indicated that the agency people and the community people on the Task Force must
come together and make their own decisions to allow for movement of the process.
It was emphasized that there must be a mechanism within the Task Force for making
decisions and that bringing these matters to the Commission and saying, "You
decide," was, In a way, a "cop-out".
Considerable time was given for consideration of these problems. Staff reminded
the group that the problems the Task Force was encountering were exactly those that
had been foreseen by Project staff (if the problem was made as broad as it eventually
became) but that the Commission had nevertheless persisted in combining the three
original problems into one problem. Staff recommended that preference be given to
the treatment of the problem involving unemployment of young persons and that the
problems of truancy, drop-outs, and the lack of vocational curriculum alternatives
be considered at a later date. Staff stated that under no circumstances could the
project increase its Task Forces to six (due to lack of time and staff) and felt it
was important that the Commission make a decision about the direction to take.
One Commissioner expressed the opinion that if the Task Force did not wish to
make the decision on what aspect of the problem to pursue, then someone, pre-
sumably the Commission, would have to decide for them. Considerable discussion
took place on this question, and the Commission took upon itself the task of re-
stating the problem in such a way that one aspect of the problem would be primary,
making the other aspects secondary. It was agreed that from a practical point of
view little could be done immediately (because of the economic situation) about
young people who were currently unemployed. Thus, it was moved that the Task
Force address itself to the issue of avoiding unemployment in the future by con-
sidering the problem of lack of vocational curriculum alternatives, which leads to
truancy and drop-outs. After discussion on the motion and several rereadings
of the motion by the Secretary to be sure it was stated correctly, the motion
was carried.
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Task Force Deliberation
Page Fourteen
The Task Force ultimately brought its recommendation to the Commission
for consideration which would provide a Career Education Program to involve
the student in understanding and experiencing career alternatives. This would
also augment career education in the public school system as a means of prevent-
ing truancy and drop-outs. Task Force members remarked that it was their
understanding that the recommendation was a pilot project which, if successful,
would be expanded to other schools. Staff concurred and added that this recom-
mendation was probably the most, outstanding one to come out of the Task Force, in
that it would enable the project to work with the schools in this endeavor. To be
invited to work with the school district was considered to be new and unique,
and the Task Force was to be congratulated. It was then moved, seconded, and
carried to accept the recommendations of the Career Development Alternatives
Task Force.
E. Legislative Task Force
This group was expected to make long-term recommendations and therefore
did not present a set of proposals for immediate implementation. It did, however,
make a preliminary report at the end of the "Task Force phase."
One thing the Task Force became aware of immediately in reviewing the
Allied Services Act was that the Act gave too much power to the Governor and the
Secretary and gave no authority to citizens' groups such as the Commission. The
Task Force recommended that: (a),an apparatus for such a citizens' commission
be developed that would be acceptable to the legislature, the Governor, and the
citizens; (b) sharing of authority should be developed with each of these entities
on a.co-equal basis; (c) the statewide Commission for such an organization should
be an elected body; (d) when it came to developing a countywide Allied Services.
Project, the commission also should be elected; and (e) the county commission
and the smaller city commissions should then nominate representatives from their
areas to represent them on the statewide commission.
The Task Force was also reviewing regulatory concerns and desired to talk
to the legislators in the county regarding the Legislative Task Force's positions,
its findings and recommendations, and to solicit their support. (To date the
replies from the legislators had been very responsive.) The group then would
move into the area of examining service adequacy and would be interviewing
various heads of agencies for their input.
k
Feasibility Process
Page Fifteen
THE FEASIBILITY TEAM PROCESS
The recommendations from each of the Task Forces were submitted to the
various Feasibility Teams for review, to establish the administrative mechanism
necessary to carry them through, and to develop a definite program of work
(implementation plan) or operational process.
A. Implementation Plan 1: Early Case-finding Pilot Program
Anticipated Impact: To identify individuals with an alcohol and/or drug
related problem and to provide them with early preventive services.
Strategy
1. Effective July 1, 1974, the Richmond Police Department was to initiate
a referral process designed to enable police officers to refer individuals
whom they believed to have a problem with the use of alcohol or drugs to the
Human Resources Agency. Beginning July 16, 1974, the Human Resources
Agency was to assign responsibility for receiving the referral card to a
service intake unit of the Social Service Department at 100 37th Street, Rich-
mond.
2. The activities of the police officers would be supervised by the regular
line supervisors of the Richmond Police Department. The functions of the
Social Service workers would be supervised by the Intake Service Division
Supervisor. The Intake Service Division Supervisor and the Chief of the
Protective Division of the Richmond Police Department would be responsible
for maintaining liaison and coordination between the two agencies. The
agencies to which the cases would ultimately be referred would be respon-
sible for supervising their own staff. The Social Service Division Super-
visor would be responsible for establishing liaison which would ensure
the effectiveness of the referral.
3. Following three months of operation, the Feasibility Team would
review the process to determine if it was functioning according to the Task
Force recommendation. At that time recommendations would be made concern-
ing the best way to continue monitoring the operation.
B. Implementation Plan 2: Alcohol Advisory Council
Anticipated Impact: A successful council would be able to make the needs
of the area known to the Alcoholism Advisory Board and would be of some influence
in the decision-making process that leads to the allocation of funds for alcoholism
programs.
'u,
Feasibility Process
Page Sixteen
Strategy:
1. This council, representative of, and responsive to, the needs and
problems caused by alcohol abuse, would be developed under its own
by-laws, elect officers, and function independent of any other body, with _
the exception of the County Alcoholism Advisory Board. The council will
develop a working agreement with the Alcoholism Advisory Board as part
of its organizational structure.
2. The Lead Agency would encourage active participation of a broad
spectrum of citizens by widely publicizing the formation of this local
body, which, among other things, would serve as a local communications
link to the County Alcoholism Advisory Board.
3. The council's objectives would be to provide education and information
to the public about problems of alcohol abuse and about existing public and
private agency services. This would include:
a. Making available a directory of public and private agency services.
b. Establishing linkages with existing public and private service
providers in order to serve as a resource in program, educational,
and informational development, and
c. Actively seeking funding sources for program activities.
4. The Alcoholism Advisory Board accepted the role of the Lead Agency and
appointed a subcommittee to initiate and coordinate the program. The sub-
committee was responsible for convening the council and for assisting it
to become an independent body with linkage to the Board.
C. Implementation Plan 3-4-5 - Local Detoxification
Anticipated Impact: More effective and more efficient delivery of substance
abuse services in West County.
Strategy
1. Non-medical and medical detoxification of alcoholics were to be under
the auspices of North Richmond Neighborhood House, located in San Pablo, and
were to begin operations August 1, 1874. Initially, emergency medical back-up
would be provided at Brookside Hospital, with referral to the County Hospital
or a convelescent hospital for extended inpatient care. Medical Services and
Health Department personnel were to work with the Brookside Medical staff to
increase their participation in an extended medical program.
2. A residential treatment center for drug abusers was to be established
In San Pablo as part of the Discovery Program and would begin operations on
4
Feasibility Process
Page Seventeen
August 1, 1974. This center would house only those individuals committed to a
long-term program. Detoxification with opiates and motivational therapy would
continue to occur in Martinez, using the Discovery House and an outpatient detox
center after August first.
3. An information and referral service would make arrangements for Richmond
residents to enter the abuse program, the Methadone Treatment Program, or to be
referred to Richmond Health Center for detoxification without opiates if the client
was not interested in a particular program..
D. Implementation Plan 6: Conservatorship
Anticipated Impact: Conservatees would be better able to cope with their
situation, while conservators would be able to meet the needs of their clients
better.
Strategy
1. One psychiatrist and one social worker, assigned by the Richmond Mental
Health Clinic, were to work directly with Conservators while Conservatees
were inpatients.
2. To facilitate conferences regarding treatment programs for individual
Conseriratees, the following procedures would be implemented:
a. All Conservatee case records would be coded for immediate identification.
b. Mental Health social workers would notify the Conservatorship Unit.
c. Conservators would make rounds on "J" ward three days per week,
interviewing patients and attending staff conferences regarding
treatment and disposition.
d. Two conservators with fulltime case loads of West County Conservatees
would spend one day each in that area.
e. . One psychiatrist and a psychiatric social worker would be available for
crisis and other ongoing consultation with the Conservators on an "as
needed" basis.
f. Basic responsiblity for administration would rest with the West County
Mental Health Clinic Chief Psychiatrist and the Social Services Special
Services Chief, while management responsibility was with the West
County Inpatient Psychiatrist, Medical Social Services Supervisor, and
Supervisors of the Conservatorship Units.
3. A one-day conference for those who dealt with conservatees was to be
scheduled at least two times to allow all those involved with.patients to
participate.
4. The Training Officers of Mental Health and Social Service would jointly
develop an ongoing training program which would include-,
a. Dealing with difficult patients and difficult relatives.
w
A
_-V
Feasibility Process
Page Eighteen
b. Developing teamwork, i.e. predischarge teams of Social Workers,
nurses, doctors, conservators, public health nurses, and others, and
c. Training with finances and property of conservatees.
E. Implementation Plan 7: Information-Sharing
Anticipated Impact: Agencies would function more effectively if those agencies
serving the same client had access to relevant information.
Strategy:
The plan was to compile a list of data elements shared by agencies and to make
them comparable and compatible for all the agencies participating in the Allied
Services process. The goals of this process were to:
1. Develop a more systematic basis for exchange of client/patient information.
2. Provide easier access to such information among participating agencies.
3. Develop a policy for information exchange procedures which safeguard
Client privacy.
F. Implementation Plan 8-9-10: Substance Abuse Consolidation
Anticipated Impact: The consolidation at the Human Resource Agency level of
substance abuse funding (including finding substance abuse funds) and the coordi-
nation at the Human Resources Agency level of substance abuse programs would
result in more efficient and more effective delivery of services to the client/patient.
Strategy:
After reviewing the responsibility for developing an Implementation Program
for Recommendations 8-9-10, it was decided that total responsibility rested
with the Human Resources Agency. Additionally, the time needed to develop
the program extended beyond the Allied Services Project's second-year
effort. The Human Resources Agency Director proposed the following:
1. That total responsibility for development of an Implementation Program
be assigned to the Human Resources Agency (HRA)
2. That HRA staff be assigned to carry through with this effort and relieve
Project staff from further involvement.
3. That the Substance Abuse Monitoring Team, the Allied Services Commission,
and the Allied Services Board continue to oversee the development of the pro-
gram.
4. That as decisions are reached regarding consolidation, the above
Project groups were to be informed.
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Feasibility Process
Page Nineteen
G. Implementation Plan 11: Career Education
Anticipated Impact: The Allied Services involvement would augment career
education in the public school system as a means of decreasing truancy and drop-
out.
Strategy:
1. Each of five Allied Services Project agencies would make available a
staff person one day per week to work with the Career Education program at
Helms Junior High School/Richmond Unified School District, which was already
ongoing with 295 students.
2. The availability of each of the staff persons was to be established and
"functional" supervision would be the responsibility of the Career Education
Program staff at Helms Junior High School.
3. The Allied Services agencies staff persons would have a wide range of
alternative ways to participate in the Career Education program, i.e. classes, '
study trips, inservice training, liaison counseling, resource, screening,
curriculum development and evaluation.
9. A team would be formed from six teachers, one counselor, an instructional
vice-principal, and the five staff members from the participating Allied Services
agencies.
H. Implementation Plan 12: Neighborhood Services Team
Anticipated Impact: The implementation of this kind of service delivery system
would: a) provide services in a more accessible, personalized manner; b) increase
self-determination among the elderly in selecting services; c) eliminate the dis-
couraging red tape which prevents clients' use of services; d) increase availability
of services to the total community; e) assure maximum client input to keep programs
responsive; f) decrease isolation of elderly papulation; g) help establish positive
relationships between various ethnic groups in the community; and h) decrease
fragmentation of services.
Strategy:
1 Neighborhood teams were to be organized to function in a given neighborhood
on a definite schedule. These teams would be composed of: a) a social worker
from social services to provide counseling services and coordinate the
overall service plan; b) a public health nurse from the Health Department
to evaluate health needs, provide nursing services, and refer for medical
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Feasibility Process
Page Twenty
care; and c) a welfare eligibility worker or Social Security claims repre-
sentative from Social Security Administration who would consider income
and economic problems.
2. The Social Service Department, Health Department, acid Social Security
Administration would staff the Neighborhood Services Team. Medical Ser-
vices, Mental Health Services, Model Cities, Police, Schools, and Probation
would make staff available to act as consultants to the team on an "as needed"
basis.
3. The sites selected included Kidd Manor, Shields Reid and the Presby-
terian Church (35th and Barrett) to serve an estimated population of
potential clients of 2,850 (elderly citizens over age 55) .
9. Administratively:
a. The Social Service Department as lead agency would publicize the
team services, provide administrative supervision, provide a social
work supervisor to coordinate the project and facilitate interagency
communication on a continuing basis.
5. Community involvement will be assured by the participation of advisory
boards from the two congregate meal sites, Shields-Reid and Kidd Manor
(organized by the Nutrition Project) , and the team would take responsibility
for developing a board composed of residents from the area who were Parti-
cipants in the recreation program at the Presbyterian Church site.
I: Implementation Plan 13: Child Development Training
Anticipated Impact: More effective and more efficient delivery of child
development education in the Richmond Unified School District, oriented to meet
the needs of those who may become parents as well as those who may be employed
in child care occupations.
8trateW:
1, During the 1979-75 school year Allied Services agencies would provide
supportive and advisory services to the Richmond High School Child Care Aide
Training Program. These agencies would assign a person to provide resource
information and effective liaison.
2. Early Childhood Education credit would be offered to high school*seniors
by Contra Costa College for special workshops, conferences, and courses.
3. Thirty high School students in grades 11 and 12 would participate in
the program.
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Feasibility Process
Page Twenty-One
4. The Allied Services agencies: County Health Department, County Medical
Services and County Mental Health Services would each designate one staff
person to participate on the existing advisory committee and to serve as a
resource person to the advisory committee chairperson.
Advisory Committee composition: the class instructor as chairperson, the
principal, vice-principal, Director of Vocational Education, the Home Econo-
mics Department Chairperson, the supervisor of counseling and special
projects, a parent, the Director of the Richmond Children's Centers, the
Director of Contra Costa College Early Childhood Education Program, Social
Services' Day Care Developer, and a Day Care Licensing Worker. The Com-
mittee would be expanded to Include: a student currently enrolled, a repre-
sentative of the secondary PTA council, and a representative of the PTA
Elementary Council.
5. Administratively: a) the instructional vice-principal at the high school
would supervise the program; b) the teacher would plan and develop the
curriculum, keep attendance, coordinate records, and convene the advisory
committee; and c) the advisory committee would provide the interagency
communication and liaison services to assist the teacher in reaching necessary
resource persons for her'program. I
J. Implementation Plan 14: After-School Supervision
Anticipated Impact: More effective and more efficient delivery of after-school
supervision to children 11 to 16 years.
Strategy
Not developed, as recommendation was determined to be infeasible without
new money.
K. Lmplementation Plan 15: Child Care Information Center
Anticipated Impact: None stated.
Strategy
None developed, as'the recommendation was not examined by the
Feasibility Team because of the time constraints of the Project. It
was instead deferred to the West Contra Costa County Children's Council,
which planned to make the development of such a center a priority of
business.
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Feasibility Process
Page Twenty-two
L. Implementation Plan 16: Night Immunization
Anticipated Impact: To provide a more efficient and effective delivery of
immunization services to children and adults.
Strategy:
1. Set up a night clinic to coincide with the opening of school and late
registration.
2. The immunizations would be provided by Health Department personnel
(three clinical nurses and two physicians) , and would be held in the
clinic area of the Richmond Health Center (first floor) at 100 - 37th
Street, from 5: 00 to 8: 00 p.m. PTA volunteers would assist at the clinic.
3. Publicity for the special clinic would be handled by:
a. Richmond Elementary Council, PTA, in the PTA Newsette; take-
home flyers in 24 Elementary Schools in the Richmond, El Cerrito,
and the Kensington area; and articles would be submitted to the
"Post", Richmond Independent, and the. Community Calendar.
b. The Richmond Unified School District would support the effort through
the take-home flyers by the children in the schools and providing infor-
mation to Social Service workers in the area so referrals could be made.
• c. The Health Department would announce the clinic hours in
the Richmond Independent and the local throwaways.
d. The Social Service Department would notify Licensed Day Care
Parents of the Special Clinic.
4. Administratively, the Public Health Medical Services Division of the
County Health Department would supervise and coordinate the pro-
gram and tie it in to the Department's ongoing Communicable Disease
Control Program. A record of immunization would be given to the
.individual immunized, and a tally of attendance by age and type of
immunization would be made by the Health Department.
M Implementation Plan 17: Coordination of Related Medical Services by the
Health Department and Social Services
Anticipated Impact: More effective and efficient delivery of health services
to children by freeing staff time for services to an increased number of clients
per unit time and reducing unit cost.
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Feasibility Process
Page Twenty-three
Strategy: In response to legislation enacted in 1973 (Assembly Bill 2068) ,
the Board of Supervisors on October 8, 1974, approved a recommendation
of the Human Resources Committee that the responsibility for the County
Child Health and Disability Prevention Program be assigned to the Human
} Resources Agency, which would be responsible for developing a countywide
program plan. If carried out, it would satisfy the intent of the plan.
N. Implementation Plan 18: Childrens Council
Anticipated Impact: More effective and efficient utilization of child care
personnel and facilities in West County.
Strategy:
1. The schools, Social Service Department, and Model Cities would support
a children's council to involve the community in identifying child
care needs and developing information and coordinating resources,
especially focusing on the community needs by providing staff to
develop and support the existing West Contra Costa County Children's
Council.
2. The Children's Council would eventually be officially recognized by
the Human Resources Agency of Contra Costa County and by the
cities of West County as the organization to coordinate the dissemina-
tion of child care information in West County, and would eventually
address the problem of lack of adequate child-care training by
assessing the need and developing the capacity to meet that need.
3. Administratively, the Lead Agency, the City of Richmond would:
a. Help the Council seek sanction as an official advisory body;
b. Provide necessary staff time to help the Council coordinate
resources;
c. Provide necessary use of a planner's time to write a formal
proposal;
d. Provide some clerical time;
e. Send a representative to Council meetings monthly; and
f. Ask for periodic reports from the Council.
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Implementation 6 Monitoring
Page Twenty-four
IMPLEMENTATION AND MONITORING
A. EARLY CASE-FINDING:
On July 1, 1974 a Police Department Order was issued advising police
officers of the referral procedure to use. On July 15, 1974 the Human Resources
Agency designated the 16 R Unit of the Social Service Department and one Social
Worker in particular to receive referrals and process them. The Social Worker
assigned met with each team of police officers to explain the process, purpose,
and anticipated effect with the exception of the 11 p.m. -- 7 a.m. shift; and by
the end of the October 1974, six (6) referrals had been made, with three (3)
referrals responding positively.
Some of the problems/deficiencies/barriers reported in October 1974 in-
cluded:
1. A small number of referrals;
2. The P.D. was short-staffed, with high turnover, and young patrolmen
did not see this assignment as meeting their needs.
3. Personal contact between Social Worker and Police teams had not
• taken place for the 11 p.m. -- 7 a.m. shift.
4. The plan to have the Feasibility Team reconvene had not taken place.
It was decided at the December 1974 Allied Services Board meeting that: ,
1. There would be continued contacts between Social Service and
Police;
2. A video tape will be produced to demonstrate the value of the service
and to provide the needed information to the teams that had not
yet been approached;
3. The referral process would be kept alive by continuing the special
Social Service assignment and by providing feedback to the referring
police officers; and
4. Attempts would be made to reconvene the Feasibility Team.
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Implementation 1i Monitoring
Page Twenty-five
At the Allied Services Board meetings of 12/19/74, 5/19/75, and 6/26/75
and at the Joint Allied Services Board/Allied Services Commission meeting of
6/17/75, there was considerable discussion between the Richmond Police De-
partment and Social Service Department heads concerning the problems in the
Early Case-Finding program. In general, it appeared that.Social Service was
prepared to receive and process any referrals, but motivation of the Richmond
Police Department field personnel was difficult because of staffing and training
problems. The Richmond Police Department agreed that Social Service had been
cooperative and indicated a willingness to continue to attempt to stimulate
referrals from patrolmen in the department.
At the October 75 Commission meeting the Chairperson of the Substance
Abuse Task Force reported dissatisfication with the program and stated it was
not being carried out as intended. The Task Force felt the plan had not been
successfully implemented and suggested follow-up, because the Richmond Po-
lice Department needed more training in carrying out this type of function. The
Task Force decided to check with the Richmond Police Department, and with the
Social Service Department, to find out how many referrals had been made and
what steps were*being taken to implement the recommendation.
At the November 75 Commission meeting the Task Force Chairperson had no
positive results to report from his investigations. He had contacted the Police
Department and reported that only about six referrals had been madi in the
previous six months, all of which were made on an informal basis without using
thi prescribed forms. People were merely referred to a detoxification center, and
no records were kept. The Social Service Department reported the same thing
and stated that their staff was shrinking due to lack of funds. During the October
1975 Allied Services Board meeting, the Police Department said the policemen
preferred the informal referral mechanism and indicated that the same results
had been, obtained in a similar Pittsburg, California, experience. Additionally,
the video tape that was to be made for training purposes was never accomplished.
B. Richmond Alcoholism •Advisory Council
On January 7, 1975 the first meeting of the Council was set:
1. Publicity was organized:
2. a tentative agenda drawn up; and
3. an acting chairperson for the first meeting was designated.
W
Implementation 0 Monitoring
Page Twenty-six
The problems/barriers/ deficiencies observed were:
a. a lack of enthusiastic participation as the commitment indicated;
b: the schools, Probation Department, and Mental Health Services
had failed to have representation at the steering committee meeting; and
c. specific assignments and responsibilities had not been delegated within
the steering committee.
It was decided that representatives of the agencies would be contacted to advise
them of the responsibilities committed by the agencies and making sure the written
program was made available. Clear assignment of tasks was to be delegated to
the steering committee members.
At the Allied Services Board meeting of May 29, 1975, it was reported that
the first meeting of the Council had been held, officers elected and by-laws
developed. The three members of the countywide council continued to be
active but one problem existing was that Council members had full-time jobs
and needed staff support to pursue the original intent. The city of Richmond,
as Lead Agency, was asked to consider the possibility of providing that support.
At the Joint Allied Services Board-Allied Services Commission meeting of
June 17, 1975, the city of Richmond felt it would be able to provide staff support
but stated there was a problem of depleting funds and expanding needs. At
the October 1975 Commission meeting the Task Force stated it was satisfied that
the intent of the recommendation had been met and staff support had been pro-
vided by the City of Richmond.
C. Local Detoxification
1. Information and Referral: At the December 1974 Board meeting it was
reported that the information and referral service was still operating
in spite of difficulties encountered. At the peak of performance, the
Service was handling 100-125 contacts per week. Staff members from
participating agencies had gone through a training program, two (2)
from Mental Health, one 11) from the Methadone Treatment program,
one (1) from the Health Department, and eight (8) from Social Services.
Some of the problem s/barriers/ deficiencies described included the dwindling
of staff by the Allied Services agencies committed to conducting the program; Men-
tal Health staff trained for the program, with the exception of one, had never
participated; the Methadone Program staff assistance was limited and sporadic,
and Social Services staff had been reassigned. No coordinator had been assigned
and the Center Director had not been able to do the Job effectively because of other
fs
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Implementation 5 Monitoring
Page Twenty-seven
responsibilities. As a result of the lack of coordination, expertise, and
follow-up, the contacts from clients had dwindled and the equipment essential
to operations, which had been stolen from the center some months earlier had
not been replaced.
At the June 1975 Commission meeting, it was reported that the alcohol
detoxification center was achieved; the drug detoxification center was not. The
Lead Agency (Mental Health Services) indicated there had been 120 calls for
that reporting period. Of the 33 recorded on switchboard data forms, 33-1j3%
represented four of the five major crucial areas: Drug Awareness, Detoxification,
Crisis, and Referral. Of the recorded calls, the approximate ratio of male to
female was 3: 5, of youth to adults, 1: 15.
Discussion relative to the staffing problems included whether effective
outreach was possible with the CETA staff under the circumstances. Mental
Health, using CETA employees, was the only agency that had provided staff; the
Health Department indicated it was meeting its commitment through the services
of an Alcohol Rehabilitation Counselor. Social Services and Mental Health
Services were to be contacted relative to staff support.
2, Local Drug Detoxification: At the October 1974 Commission meeting a
status report was presented by the Chairperson of the Feasibility Team. He
reported that, although none of the recommendations were feasible under the
Project constraint of "no new money," several of the recommendations would be
implemented with "new" money made available from State funding sources.
It was reported that the nonmedical Alcoholism Detoxification Center was
in operation and was getting good cooperation from Brookside Hospital in pro-
viding medical backup. No residential drug treatment facility had been located,
but the Richmond Redevelopment Corporation site had been considered. The
corporation did not wish to be just an advisory body to the Discovery program but
would want to be actively involved in the operation of such a facility. The search
was to be expanded to include other than West County sites. It was suggested that
the Commission make its recommendations known to the Richmond Drug Abuse
Council and that the Commission should involve itself in the process to determine
the priorities for use of drug and alcohol abuse funds.
It was suggested by staff that the Commission designate a subcommittee
to write a letter to the Richmond Drug Abuse Council advocating it stand for
giving funding priority to a West County drug treatment facility and a medical
detoxification facility. After some discussion, the Commission decided that the
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Implementation $ Monitoring
Page Twenty-eight
Substance Abuse Monitoring Team was the appropriate subcommittee to carry
out this function.
At the June 1975 Commission meeting it was questioned whether or not the
referral program was a viable one in view of the limited services to which clients
could be referred. The chairman of-the Mental Health Advisory Board stated that
if funds were found, the MHAB will be happy to support the program. The Direc-
tor of the Human Resources Agency stated that if the community wanted input in
this area, it should begin to get involved in the process for next year. Mental
Health operates on such a long-range lead time that it was already beginning its
process for the 176-77 fiscal year. Reference to the memo dated November 14,
1974, in which the Commission asked for support for the plan that had been de-
veloped, revealed that the memo in question had been sent to the Drug Abuse
Board for follow-through. It was also pointed out by the Mental Health Represen-
tative that the detoxification center at the County hospital was getting started and
would be going soon. The problem was that it would be in Martinez rather than
West County; however, that was better than clients' having to go to San Francisco
as was presently the case.
The commitment made by the Allied Services Board to support establishment
of a detoxification center in West County was reiterated. The group was reminded
that it had been decided that both the Commission and the Board would approach
the two bodies involved to secure support for the plan, and that step had not yet
taken place. The Director of HRA said "unless a chunk of money drops out of
the sky" and unless the Drug Abuse Board and the MHAB decide on the Center
as priority, nothing would happen.
At the October 1975 Commission meeting, the Task Force reported its dis-
satisfication with implementation of the recommendations but felt there was nothing
much it could do about it. The Task Force did not achieve its recommended
medical detoxification center for drugs but did get a medical detoxification center
for alcoholism at Brookside Hospital. The information and referral service which
was provided in lieu of the medical detoxification center for drugs in West County
was not an appropriate substitute, as there was no place in West County to refer
persons needing medical drug detoxification. The matter had been discussed at the
September 1975 Allied Services Board meeting, at which time it was made clear that
the Task Force was dissatisfied with the implementation of the recommendation.
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Implementation & Monitoring
Page Twenty-nine
The question of the need for a medical drug detoxification center in West
County had never been an issue; rather "funding limitations" and profes-
sional preferences had precluded implementation of the recommendation.
D. Conservatorship
At the May 1975 Allied Services Hoard meeting, it was reported by the Lead
Agency that hospital care records for Conservatees had been coded for imme-
diate identification, and a Mental Health Social Worker was notifying the Conser-
vatorship Unit when a Conservatee was admitted. The social worker for the
Conservatorship Unit was making rounds on "J" Ward, attending staff confer-
ences, and serving as fulltime liaison between the two departments. Consulta-
tion was being provided by a psychiatrist and a psychiatric social worker, assigned
by Richmond Health Clinic, for conservators. A workshop had been held on
October 9, 1974 for all staff who deal with Conservatees (Social Service and
relative Conservators, Mental Health staff, legal-judicial, and law enforcement
representatives, and board and care operators) ,
Several problems were noted: The original plan provided for 2 Conservators
with fulitime West County caseloads to spend one day each in West County. This
had been discontinued because of the increased workload in the Conservatorship
Unit and the need for workers to accept cases from other areas of the County.
Some of those questions raised by workshop participants required legal inter-
pretation and necessitated meetings between the Mental Health Program Chief and
a Deputy from the County Counsel's Office, but the meetings had been delayed
because of other commitments. Ongoing training, as described in the plan, could
not occur until the training needs had been determined.
It was suggested that the Conservatorship Units examine the possibility of
assigning all West County Intake to one or two workers (rather than on rotation
as was being done) in an attempt to meet the commitment to having staff avail-
able in West County on a regular basis. Regarding the need for meetings be-
tween the Mental Health Program Chief and the County Counsel's representative,
plans were in process for a specific appointment within the following month,
At the June 1975 Joint Commission-Hoard meeting, the Lead Agency reported
that a follow-up meeting had been held, and most of the answers for questions
from the workshop had been obtained. Suggestions had also been received
1
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Implementation & Monitoring
Page Thirty
as to the type of continued training desired. The Conservatorship Unit also had
a worker for 2-1 days per week working closely with conservatees on the ward
and with staff on the psychiatric wards; great changes in communication had been
seen as a result. However, due.to a lack of conservatorship staff, no conservators
- are housed in West County; it was too far away from the courts for them to be
stationed there.
Discussion ensued as to whether the agencies involved were sufficiently
committed to the program to ensure its continuation. The Lead Agency ex-
pressed the opinion that all the Allied Services agencies were committed to the
concept. The County Counsels office needed to be more involved, and attempts
would be continued to maintain contacts there. At the October 75 Commission
meeting, the Task Force stated it had hoped that direct service could be pro-
vided to conservatees in West County. Even though that part of the recommen-
dation had not been achieved, the Task Force felt for the most part that the
intent of the recommendation had been met.
E. Exchange Of Information
At the September 1974 Commission meeting it was reported by the Joint
Monitoring Team (Legislative Task Force -- Substance Abuse) that when they
began to work together as a Monitoring Team the Feasibility Team was heading
in the wrong direction, which led to delays as the Joint Monitoring Team worked
to get back to what it saw as the intent of the Task Force. Other delays were
caused by the vacation season, etc. Therefore, some of the agencies involved
had not submitted plans on how they intended to carry out the program. Plans
had been received from the Health Department, Probation Department, Richmond
Police Department, and Social Security; they were included in the Implementa-
tion Program. Many technical questions relative to the legalities of information
sharing remained unanswered. The Joint Monitoring Team recommended
that the Feasibility Team continue its work to resolve these questions.
The Chairman of the Feasibility Team was asked for his comments relative
to the Implementation Program. He stated that the Team had submitted its
Implementation Program and was no longer in existence. He said he therefore
saw no way in which it could conform to the desire of the Joint Monitoring Team
to continue the work. The Feasibility Team felt it had discharged its respon-
sibility and was no longer in business. Therefore, it proposed to the Commis-
sion that it take the program as received, since the Team had done all it
could do. After some discussion, the Commission recommended adoption of the
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Implementation ff Monitoring
Page Thirty-one
status report with a recommendation to the Board that the Feasibility Team be
given an extension of its time frame in order that the work could be completed.
It was pointed out by project staff that the Task Force recommended
that methods by which information was shared should be known and under-
stood by each agency. The intent of the Feasibility Team had been to
provide a method by which each agency could inform another agency as to
how it exchanges information. When the Monitoring Teams became involved,
a problem developed because the issue of confidentiality was raised. The
Legislative Task Force felt the form as developed should insure that the
methods used would be within legislative controls. Staff felt a problem had
developed because the Joint Monitoring Team began verging over into the
area of Implementation rather than remaining in the area of feasibility. Staff
agreed with Mr. Levin that the Feasibility Team had discharged its respon-
sibility as far as it could go. From this point on the problem would be
addressed only by persons who are more knowledgeable in the area of legis-
lative constraints and controls than the members of the Feasibility Team.
It was emphasized by the Legislative Task Force that whatever system is
developed should at the same time insure confidentiality and consumer pro-
tection. The Director of HRA suggested contacting the Chairman of the HRA
Confidentiality Committee since that committee on confidentiality had gone
over much of the same ground and would probably be able to lend some helpful
insights into the problem. It was pointed out that many of the people on that
committee were also on the Feasibility Team-
At the October 74 Commission meeting it was reported by the Joint
Monitoring Team that since the Feasibility Team had_ disbanded itself, the
Commission requested that the Allied Services Board reaffirm its commit-
ment to fulfilling this recommendation by continuing the Feasibility Phase.
It had also been suggested at the September 74 meeting that the Project staff
meet with the Joint Monitoring Team to clarify intentions. The result was
that the Allied Services Board extended the Feasibility Phase through Jan-
uary 31, 1975, in order to try to complete the exchange of information pro-
gram to the point of implementation. Each agency was to designate a person
to work with the Joint Monitoring Team and the Implementation Phase would
take place in a different time frame from the other implementation programs.
PO0
R
Implementation & Monitoring
Page Thirty-two
At the June 1975 Commission meeting staff reiterated that the recommen-
dation came out of one little statement by the Substance Abuse Task Force to the
effect that "it would be nice if better communication could be facilitated among
the agencies." Background information regarding the decision to create a Joint
Monitoring Team to pursue the matter was given. The Joint Monitoring Team
was still meeting in an attempt to get clear policy statements from the Social
Service Department. New legislation had been enacted which needed to be
interpreted in order to make a response. The problem of confidentiality had
caused the program to be a much bigger task than anticipated. All agencies
except for Social Service had submitted their plans, which were being held in
abeyance until the material was received from Social Service. The Joint Moni-
toring Team had sent a letter to the Director of the Human Resources Agency
expressing concern about the delay.
At the July 1975 Commission meeting it was reported that,no progress had
been made. The Joint Monitoring Team had met with the head of the Task Force
working to develop the Social Service plan. Information received from him was
that, because of the new State laws relative to Title XX and the delay in receiving
guidelines regarding their implementation, Social Service was unable to pro-
ceed with its plan until they were received. The Monitoring Team expressed con-
cern that it would probably be waiting around for the life of the Project for the
plan. The Monitoring Team felt it crucial to have more discussion, and perhaps
some rethinking, on what the Monitoring Team should do. In the interim it
had secured a copy of the State Plan and distributed copies of a summary of
that plan to Commission members. Public hearings on the plan were to be
held in San Francisco on August 1, and the Commission was advised to get
together regarding a presentation for August 1 if they desired to comment on
the plan.
The Commission discussed how to move ahead. The Social Services Direc-
tor said he did not see the delay as being due to the State Plan; he felt it was
due to the complexity of the various types of programs in the Social Service
Department. He offered to go back and check into why the Social Service office
felt it could not move forward and added that he knew Social Service staff was
finding it difficult to come up with a simple statement on information exchange.
The Joint Monitoring team said if efforts were made just to determine where
the problems were it would be a big contribution. It was agreed that the
problems involved were difficult and cut across many lines.
.2'. �' e•?t� =q.�✓��t<�k�°',d.e :"a �":e'�, ��G 1U.t..k�Y.sk"^�;tV;-'"ic`i�'�ip��j':�3,".t ���F 3z��S3r�t�A.�{F))Y'{{{�, i/;',,.y s c2� .5f'�'Kf�,t,§` t �, � �,, ..
Implementation & Monitoring
Page Thirty-three
. The Monitoring Team said it did not require one guideline for Social Services;
if fifteen guidelines were necessary to cover the entire department, they would
be accepted.
Social Service staff stated that one of the problems was that the committee
was too high-level, in that many of the members were involved with adminis-
tration, and their time was taken up with administrative detail. First-line
supervisors were normally responsible for dealing with these issues con-
tinually. It was suggested that this could possibly be taken up at the district
Social Service staff meeting the next day.
The problem facing the Joint Monitoring Team was that of waiting for some-
thing to monitor, and some of its members expressed an interest in sitting with
the Task Force. It felt the issue was so important that something needed to be
done about it. Staff reminded the group that the Social Service Department has
its own advisory group, the Family and Children's Services Advisory Committee,
which was also interested in Title XX and had the same types of concerns the
Commission had regarding the information system. It was suggested that the
Commission make immediate contact with that Council and make a presentation
to it to solicit is support. Perhaps with them or through them the effort may
be carried out. (See Addendum Legislative Task Force Report) .
F. Substance Abuse Consolidation
In May 1974 the Feasibility Team reported that legislation had been passed
by the State which, effective January 1, 1975, required the establishment of
a separate Office of Alcoholism in the County, which in effect precluded the
depth of consolidation initially recommended by the Task Force. Subsequently,
in September 1974 the Commission was advised by the Director of HRA that in
light of the new legislation, total reponsibility for developing an Implementation
Program for Substance Abuse Consolidation rested with the Human Resources
Agency. Additionally, the time needed to develop such a program extended
beyond the Allied Services Project's second-year effort.
At the June 1975 Commission Board meeting, it was reported that since
the recommendation was deferred to the Human Resources Agency, the Director
of Mental Health had been delegated responsibility for drugs and alcohol.
Even though the Substance Abuse Task Force had recommended that drugs not
be splintered off from alcohol, the Director of HRA indicated that new legislation
+l sr r,' { :V 'Fj § �'_.�� 5.s ar..S' s rt t' f cam,'.�..k zr
`1•`q "S-"`• c+ fi `,,3 }:fii
,c.y'1:Vn''�"#z33� t1Vt3+t*�,-::yo- _`9:,aa(s•ss :.'y,,:'t..>" t'i $'27t4'S'o ''.'.' `�4+ 1n4 F1 cy ..£, 't' y.•., 4 ,;" ,'�7�'i.Trr."•.' ?;r' Y.�J;k.� <;�,7.£';S:iga;;Y.
Implementation $ Monitoring
Page Thirty-four
being proposed in Sacramento would require a splintering off, with split
administration, split staff, etc. There was a considerable difference of opinion
as to whether it was a good bill or not, and the Chairperson of the MHAB stated
that anytime there is a splintering off, there are problems. Mental Health was
reported to be attempting to defeat the legislation.
At the October 1975 Commission meeting the Task Force reported that this
recommendation had been taken out of its hands because of new legislation
effective January, 1976, which mandated a splintering off of alcoholism programs.
A separate alcoholism office must be set up and funds would no longer come out
of the Short-Doyle Act but would come out of a separate fund with a separate
administration from the current set-up. The consolidation recommendation was
not accomplishable, but it was hoped that the office on alcoholism would be a
part of the Drug Abuse and Alcoholism Coordinator's responsibility. The Task
Force recommended that as much coordination as was legally possible should
be undertaken at the County level.
It was reported at the November 1975 Commission meeting that the Director
of HRA at the Allied Services Board meeting stated that even though new le-
gislation required splintering off of alcoholism funding, that did not mean that
coordination of programs could not-take place Therefore, the Commission's re-
commendation for coordination at the County level was still possible to achieve.
G. Career Education
It was reported as of December 1974 that an operational program existed,
with Allied Services agencies providing staff to augment career education ser-
vices at Helms Jr. High School, and that a trust relationship had been developed
between teaching staff and the persons assigned by the agencies. A Problem
Resolution Model for the 1974-75 school year had been established and an Asses-
went Model for evaluation was also set up to be used for that school year. Func-
tional supervision by school administration had been installed for the 1974-75
school year, and records were to be kept by the school. The school adminis-
trators were reported as being pleased with the services provided.
Some of the problems/barriers/deficiencies mentioned included the lack of
available information on the actual number of hours being contributed by agency
personnel or the numbers of persons served. The Social Worker from Social
Service had dropped out of the program unexpectedly and it was associated as
being due to a failure in utilizing the Problem Resolution Model. The Assess-
went Model had not been utilized at that;time'.
0
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Implementation 6 Monitoring
Page Thirty-five
It was suggested that if agencies are to continue to use staff in specialized
assignments, some records must be kept to lend credence to the use of staff
time. The information must also document whether the services provided are
within the specific functions of the agencies. The assessment team was to develop
recordkeeping methods if necessary and to discuss whether the Problem Reso-
lution Model might be used more efficiently. Agencies involved in this program
were to be made aware of the Assessment and Problem Resolution Models, and
if there were problems with their staff, they were to contact the instructional
vice-principal of Helms Jr. High School.
A representative of the Richmond Unified School District pursued the
problems outlined in the Compliance Review and reported to the Allied Services
Board on 5/19/75 that the school contact person felt the program was doing well.
However, the Social Service representative was still not participating, and
the Probation staff member had dropped out because of program cutbacks. A
representative of Medical Services reported that both the Medical and Mental
Health representatives were not planning to return to the program the following
school year, because they felt their services were not valued.
At the 6/26/75 meeting of the Allied Services Board, it was reported that
the contact person for the schools had pursued the issue of the return of Medical/
Mental Health staff and had been assured they would continue in the fall.
Social Services was not sure about the return of their staff person to the program
and indicated that when the knowledge of the next year's budget was known this
could be discussed.
At the October and November Commission meeting it was suggested that
the Career Education Task Force visit Helms Jr. High School to see how the
program was being carried on. It was suggested that it would be a good idea
to have the Career Education Program carried out at the high school level as
well as at the junior high school level.
Having talked with the Career Education staff at Helms Junior High School,
it was reported in December 1975 that the program was encountering serious
problems due to insufficient staff to keep it going-except on a part-time basis.
The school was still providing some staff and at.the time it was not known when
the next meeting would be held. Meetings were not held regularly (maybe a
mating one month and then none for two months or more) .
t
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Implementation 6 Monitoring
Page Thirty-six
H. Neighborhood Services Team
In January 1975 it was reported that information and referral services
had been provided to the Senior Activities Center at Richmond's First Pres-
byterian Church during the pre-test period and four weeks into the Implemen-
tation Phase. A permanent linkage was established so that people using the
center knew whom to contact for help. The services were terminated by
agreement with the activities director because it was decided there was no
further need. Shields-Reid and Kidd Manor Nutrition sites continued to receive
a limited amount of service time from Social Services and Health Department
because of the interest of the staff persons assigned.
Implementation had not gone well because it was determined by the team that
the population served by the Nutrition Project was not in need of the same services
generally considered by the agencies to be priority, i.e. , services to the home-
bound, to the severely ill, or to persons in need of protection. Being out in the
community did not appear,to increase the number of "priority" referrals since
most referrals of this nature were generated by hospitals, doctors, or occasion-
ally family members. Neighborhood on-site staff had not been brought together
to form working teams, inasmuch as workers assigned to this program had been
given other assignments with higher priority.
It was suggested that the Lead Agency call a meeting of the Administrative
Review Team (as described in the Implementation Program) to report these
findings. The group was to determine what segments of the program could
be implemented, rewrite the program to fit current feasibility expectations, and
report to the Allied Services Board the results for approval.
At the Allied Services Board meeting of May 29, 1975, it was pointed out
by the Lead Agency (Social Service) that the program had received regular
weekly participation of Social Security staff. They found that a major barrier
in the program was that people who came to the team sites were not those that
Social Service was geared to assist. The conclusion of the Board was that
Social Service should take responsibility for setting up meetings with the other
agencies involved to review the team concept.
At the July 1975 Board meeting it was reported that all departments, in-
cluding Social Security, were participating in the program in on-site field
services. A complete range of field services was offered to the clients
at these sites, but geographically defined caseloads had not been estab-
r i k.,,. r' - c kl 4 ,.. �.h( tj•tfi r y ''L�,
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Implementation & Monitoring
Page Thirty-seven
lished by Social Service staff because of internal changes, and use of func-
tional basis for workload organization. The Presbyterian Church received
on-site services from Social Security two hours per week. Shields Reid re-
ceived services from Social Service one hour per week, Public Health one day
per month, and Social Security four hours per week. Kidd Manor was served
by Social Service 1i hours every other week, Public Health two hours a
month, and Social Security (San Pablo contact station) one day per week.
The Lead Agency reported that the experience with on-site services had
been useful in determining community needs and effective ways of meeting
these through service programs. For example, while Social Service and
Public Health time was not well utilized at the Presbyterian Church site,
the Social Security-representative had continued to provide information to
a large number of people each week. While some Social Service and Health
Department time was provided at the other two sites, the need for flexible
scheduling was apparent from the uneven volume and variety of services
requested.
Experience with both the on-site and field portions of the program in-
dicated that the "treatment" model team was not feasible because of adminis-
trative problems and the variety of client needs; rather, a well coordinated
and easily accessible service system was seen as a more viable goal. To
achieve these goals, it was suggested that more work could be done in the
future to insure that staff is knowledgeable regarding programs and that
procedures and methods for conferencing complicated cases involving
more than one department be publicized and utilized more fully. (Medi-
cal Social Review Team and the Health Outreach Team were two inter-
departmental groups where this was being done.)
It was suggested that coordination of the program be upgraded, and plans
were underway to implement quarterly review meetings, effective August
20, 1975. An on-going group would take responsibility for information
sharing and would continue to discuss other ways of achieving the appro-
priate goals.
One specific idea to be considered was the use of traveling information
and referral teams to various community groups to acquaint them with
services on an ongoing basis. Social Security was already using a bus for
I
Implementation & Monitoring
Page Thirty-eight
this purpose in the San Pablo area, and Social Services and the Health De-
partment could consider joining with them to provide a limited amount of
outreach information and make referrals. It was further stated that the ini-
tial idea of the team to serve the elderly did not seem feasible; however,
better ongoing coordination between departments and the opportunity for
interdepartmental and agency case conference did seem feasible.
At the November 1975 Commission meeting the Task Force reported that the
original concept as planned had obviously not worked out. Social Security was
spending two hours per week at the Presbyterian Church. The Social Service
Department provided two hours a week, the Health Department one hour per
month, and Social Security five hours per week at Shields-Reid. At Kidd
Manor, Social Service was spending 1-* hours twice per month, Public Health
J hour once per month, and Social Security was there every weekday from
9: 00 a.m. to 4: 00 p.m. It was reported that this program.had been discussed
at the Board meeting, and it was the feeling of the agencies that the learning
experience could probably be utilized in planning future programs.
A member of the Task Force stated it was understandable from talking with
members of the Team why the plan was not working. He said he had never be-
lieved that anything would really happen, and still believed nothing would
happen until the decision-makers really decided to support the effort. Team
members were having quarterly meetings and swapping information, which
helped a little to improve the services; nevertheless, he was very discour-
aged about the implementation of the program even though those directly
involved had really tried to execute it.
It was necessary to put the program to test to find out whether it would
work, and the experience*had not been entirely wasted because small gains
had been made. It was learned, for instance, that the clients at the Presby-
terian Church site were interested only in Social Security, and at Shields-
Reid the people who needed to be reached could not get to the site for services.
The point was reiterated that unless the decision-makers are behind a program,
one just bats his head against a stone wall, and in spite of having meeting
after meeting, nothing gets done. It was further stated that real results will
never be obtained until there is a taxpayer's revolt.
.y+• '4 S i ,' ..: ,. � t ( :L''' ^v.t'�u- 'S .Y �F v",S. r y ;t i, 1 c?e} � � r�l.,�'�1Yt.;Scw�%1Z!r&�kE�lat; r. .,<.4 4 .,.�-. t .r..rti.1°r,S
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Implementation ff Monitoring
Page Thirty-nine
This viewpoint and others were discussed in an attempt to assess the
Commission's experience and the reasons some of the implementation programs
had not succeeded. One commissioner summed up the discussion by saying the
experience shows that citizen's groups need to have some power rather than
always being merely advisory; at the very least they need veto power.
I. Child Development Training
In December 1974 it was reported that a Child Care Aide Training Program
was offered to high school students as part of. the Home Economics Vocational
Education Curriculum at Richmond High School and college credit could be earned.
The teacher in charge of the program was preparing (or had prepared) a write-
up of the child care sequence. An advisory committee, expanded to include the
kinds of representation specified by the Implementation Program, was to be
utilized to advise on course content, assist with plans to expand the program,
and report to their respective agencies or groups on the progress of the program.
Ongoing efforts were underway to expand the program to other schools in the
District.
Some problems/barriers/deficiencies were noted. It was reported that
the curriculum committee of the District turned down the proposed expansion of
the training and the name change proposed due to unforeseen circumstances
which required the School District to relook at its operations. The Richmond
High School population decreased substantially in 1974-75, resulting in much un-
used space. The District had resolved to centralize its Career Development
classes in one location. Classes would be offered to students in all other high
schools, they would come to Richmond High for individual classes and full
programs.
No new vocational courses would be offered at any other high schools. If
interest is sufficient, there may be a chance for one additional Child Care Train-
ing class, but the demand would have to be weighed against availability of
jobs in the labor market. The course title, Child Development Training, was
considered too broad for the time being in light of the committee's interest
in narrowing down the school District's focus and, generally, freezing the
addition of any classes. The chances for vocational education funds' being ex-
pended on additional child care aide training classes was said to be unlikely.
f
l t 1'r j� �'�:-,t,�h . r 4 3 °! ?,sem§�sa`s �»'�-,v'"§r 41�, 5F�'i��t do>•. '{s rcK{r,�gg�,,�i� . �a�^•+� � �: s`-js�,�
Implementation & Monitoring
Page Forty
. When the Compliance Review was presented to the Commission (12-10-74)
a representative of the Richmond Unified School District explained that in-
structions relating to parenting would be included in existing courses, but z
not as a new or separate class. He was asked to check out some alternative
ways in which the instructions could be provided. At the Joint Allied Ser-
vices Board/Commission meeting of 6/17/75, it was reported that starting
September 75, the Career Center at Richmond High School would have a gene-
ral program of "People-Care Services" which would cover better parenting
in a program from "Child Care Training Aide" . Better parenting could be
treated either through a vocational approach or as something that should be
realized by every student.
At the October 1975 Commission meeting, the Task Force reported that
there was a people-training program in the schools which would have a
specific program for child care training. The Task Force decided to set
up a visit to the schools to check out how this program was working and what
was being covered. A follow-up report in November 1975 from the Task Force
indicated that the school had a very good program in operation and that a
• Commissioner had been asked to serve on the advisory committee. Several
meetings had been held during the summer, but none since July 1975.
J. After-School Supervision
In was reported in September 1974 by the Task Force that the Implemen-
tation Program was a very good one. It was infeasible at the time due to the
lack of funds to hire staff persons to administer the program. The Monitoring
Team was very reluctant to accept the verdict and felt some of the ideals of
the Allied Services Project were not completely fulfilled in the development
of the program because of a lack of cooperation and communication between
the agencies. The Monitoring Team felt that if this particular program was
not feasible, alternative approaches should be explored rather than dropping
the idea. It was recommended that the conclusions of the Feasibility Team
not be accepted but be referred to the Allied Services Board for consideration.
Staff indicated that the real obstacle to implementation of the program was
not lack of support by the City of Richmond or any of the other agencies but
a lack of finances to carry out the implementation. It was further stated that
the Feasibility Team had done all it could do without Board commitment,
Implementation 4 Monitoring
Page Forty-one
it was now up to higher-level decision-makers to resolve the problem. Dis-
cussion ensued as to various possibilities for obtaining funding for staff
for the program, as the Task Force saw this particular recommendation as being
one of greatest importance in the area of child care. It was decided that the
Commission should pass the Implementation Program on to the Allied Services
Board with a very strong plea that the Board make it a feasible plan, the intent
being that the Board find some way to provide staff to the program.
The City of Richmond Recreation Department reported at the October 1974
Board meeting that the problem involved putting on a new staff person at addi-
tional cost to this department and reminded the Board that the original posi-
tion of the Project had been that no new funds would be required for any program.
He noted that estimated costs had`gone up even higher than originally projected.
Concern was raised to why the Boys' Club had not had any input into the plan.
It was explained that input had been solicited from all areas of the community,
but that at the time the Task Force was working on the problem the Boys'
Club had not sent any representative to the meetings.
The Director of HRA asked whether the Richmond Recreation Department
could carry out the program if the money could be found and whether the
Recreation Department could use a capable person from another agency. He
was answered affirmatively. Staff stated that at the Commission meeting it was
made known that this would require an extremely sharp and enthusiastic person
to be able to handle the program. There was some discussion as to whether
the service being discussed was, in actuality, anything more than babysitting.
The Task Force representative agreed it might be called babysitting but that
babysitting for 11 to 14 year-olds would require some very active and crea-
tive programs, the idea being to provide a responsible and secure place where
the "latch-key" child could go and be signed in and out.
The chairperson of the Commission expressed the opinion that the Board
should deal with the question of whether it could provide the appropriate
staff at some other location rather than drop the program because the Recre-
ation Department felt it could not carry out the program as planned. It was
further stated that the possibilities were not being adequately explored and
that another question to be dealt with should be whether any ongoing programs
such as those of the Boys' Club and the YMCA adequately met the needs of the
target children. The Recreation Department replied that there were other re-
source agencies that could provide the service better than the Recreation Depart-
ment. Staff,commented that perhaps at the time the Task Force deliberated on
� ti'iiyd' .�+r. S�t ,.u 4: },k�. yC� t�.. 4 ?�� n.� k r5+v_ 3 .•vz t' .• s.�:s � �9' a,..T,7ti G. .a<T-,S' 7_ 'rk'.4
rN� � .+{ - ..�, �'�t�sw�{,"�,^`erttf p#t�}�;'ryw�,�Y i' rg'#� �'F �� Y' '�`. G�1'riG;iF `y`.a S. �' {'{,-*42s"s�!'''Ssrd'.,,� z"� +,�• `�. �,Kk',�z=4 r ir �i��v_d.�:"'i.'
Implementation & Monitoring
Page Forty-two
the problem the resources being spoken of were not in existence. The Recrea-
tion Department disagreed and said they had been in existence and suggested
that perhaps another group could better head up the proposed operation in
the same location. —
Staff emphasized the fact that the Project was at a point where a decision
should be made that the program was either workable and should proceed or
that it should be scrapped, that Project staff could not support another Feasi-
bility effort because it was going into the Implementation Phase, and that if the
Recreation Department said the plan as outlined was not at present feasible,
then the Board should recognize it as infeasible. It was brought out, however,
that volunteers were already being used wherever possible. As the problem was
not just one of dollars and cents, the Board should decide the program was
either worthy of being carried out or unworthy of being carried out.
A question was raised as to whether it might not be possible to say the plan
was feasible pending other action. The issue of feasibility versus infeasibility
at present or in the future was discussed. It was finally moved and seconded
that the Board not accept the program as written. There was no further dis-
cussion. The question was put to a vote and carried, with one opposition
vote by the chairperson of the Commission, who thought the Board was "copping
out."
At the October 75 Commission meeting it was expressed that as a result of the
Task Force's efforts and its interaction with other community agencies, the West
County YMCA-YWCA had instituted a program similar to the one proposed. The
Task Force would check with that organization to find out how the program was
working and what similarities it had to the Task Force's recommendation. The
Child Care Task Force considered that its recommendation spoke to one of the
biggest needs in the community. At the November 75 Commission meeting the
Task Force reported disappointment with the information gathered from contact
with the Richmond YMCA. It was found that if one is a member of the YMCA and
is highly motivated and can get to the location, there are a lot of after-school
programs available. There was still no provision for after-school supervision
of young teenagers, which was one of the prime concerns of the Task Force.
'(rt Sir -s �d
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Implementation 61 Monitoring
Page Forty-three
K. Child Care Information Center
In December 1974, it was reported that the recommendation for a child
care information center, as outlined by the Task Force, had been determined -
to be infeasible. The Social Service Department's Day Care Unit (Richmond
office) had started operating a referral service (Monday-Friday 8: 00 a.m.
to 5: 00 p.m.) for child care resources in October 1974; however, the Social
Service Department lacked staff to expand the service. The recommendation
was then deferred to the West Contra Costa County Children's Council, which
planned to make the development of such a center their priority. The Social
Service Department Indicated its interest in cooperating with the Council in
the hope that the service could be made available to the community on a 24-
hour basis.
At the October 1975 Commission meeting the Task Force reported that it had
originally felt this recommendation would be a very easy one to implement and
would not require any new money. However, it turned out to be fraught with
enormous difficulties, even when the implementation had been referred to the
West Contra Costa County Children's Council. A follow-up report was pre-
sented at the November 1975 Commission meeting indicating that two meetings
had been held with representatives from the City of Richmond regarding the
problems of space and staffing in an effort to obtain a director and a secretary
to set up the Child Care Information Center. One staff person working with
the Council had spoken of setting up a master center where all the day-care
centers can receive professional consultation. Questionnaires were to be
sent out to gather information for a needs assessment for the project.
L. Night Immunization
In January 1975 it was reported that a pre-test of the implementation
program in May 74 resulted in the immunization of 122 patients, 62 under the
age of 15. The first clinic had taken place in September 1974 after school had
started; 66 patientq were immunized, 43 under the age of 15. The next
clinic was scheduled for March or April of 1975. Publicity was organized by
the Health Department; information was published in the local newspaper and
in flyers distributed by the P.T.A. , Social Service, and the Richmond Unified
School District.
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Implementation & Monitoring
Page Forty-four
• There had been no major problems encountered with the implementation
program. The Health Department would continue to hold night clinics as
long as the community response indicated a continued need. The number
attending the September clinic was small; however, this may have been the _
result of timing, as most school immunization (if done at all) would have
been completed by the time this clinic was held. .
A representative of the Health Department reported in July 1975 that
he had worked very closely over the past year with the Child Health and
Disability Prevention Program !ihich would be implemented on a county-
wide basis. He stated that, over the years, one thing that caused many
children to get adequate immunizations was tying them into entrance re-
quirements for school. The schools desired that the preschool examinations
be made before the children got into first grade. Therefore, they were done
during the kindergarten years if possible so there was no last-minute pile-
up and problems could be identified early.
The representative also said most families have so many financial demands
placed upon them that unless there is a crisis situation health care often has a
• low priority. Therefore, through the efforts of Willie Brown and others, the
Child Health and Disability Prevention Bill was passed. It would pick up the
children while they appear to be well and before they get into the school system.
For the first year it was planned that all children entering their first year in
September would be screened, and in 1976 it will-be mandatory. As part of the
procedure, the children's immunizations would be brought up to date. The
Health Department calls these "wellness" examinations and hopes that conno-
tation will aid in stimulating parents to see to it that their children have the
screenings. A complete physical will be given and a medical history taken from
both the mother and father if possible. One good spinoff from the program has
been that when a mother brings in one child for an exam she often brings in
other children who become interested in having examinations themselves.
Because the last of the series of three night immunization clinics held was
not well attended, the Health Department was concerned as to whether they
warranted the effort. A special night immunization clinic had been held June
28 tinder the auspicies of the Richmond Boy's Club. It had a very worth-
while turnout. In other parts of West County the screenings are available free
• to all children who have a Medi-Cal card or to those whose families meet the
income means test.
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Implementation & Monitoring
Page Forty-five
Persons with higher incomes than that have to go to other sources for their
screenings and pay for them themselves. However, there is a strong feel-
ing in the legislature that a means test is discriminatory to many groups.
In areas where parents are well able to pay the medical expense, there may
still be a lack of motivation.
A Commissioner expressed displeasure with the fact that after a groat
deal of planning and discussion with the Health Department last year, when
it'was agreed to schedule the night clinics to coincide with the opening of
school in the fall and kindergarten registration in the springy they were
not so scheduled. It was indicated that the early screening program would
probably not do the job because some children would "slip through the cracks.',
Also, as long as a school secretary has to accept the parent's word that immuni-
zations have been done, no progress will be made.
The Health Department representative replied that he was not claiming the
program would solve all problems. He stated that young children coming into
first grade will be pretty well covered for immunizations, but after that age
there is a decline. The commissioner replied that she hoped there would be a
continued outreach effort for parents who work and she added that it is the
children in middle-income groups who are the ones to "fall through the cracks,rr
It was indicated that the Health Department was finding that the children with
the highest incidence of problems are showing up in Central County and that this
went back to the question the Commission had addressed before: How can
these people be motivated to avail themselves of the service?
Some of the suggestions made included:
1) Having the school records checked to see if the children were immunized.
This might be a way to find children who are "slipping through" or new people
in the community. However, it was reported that the Richmond Unified School
District was not providing that kind of cooperation.
2) The possibility of having mandatory immunization certificates .
3) Setting up an operation so when a parent brings in a child and the
school secretary asks if his/her immunizations are up to date and the parent
replies that they are but the certificate was left home, the secretary could then
suggest it is time for a booster shot. Then the child could be sent right into
the next room where booster shots are being given.
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Implementation & Monitoring
Page Forty-six
4) A correlation of efforts to urge institutions to move in areas where they
are by themselves restrictive and will not move, and.to find some way of letting
parents know the clinics are available and are free.
5) Sending a stuffer announcing the clinics with welfare checks.
8) Having the school authorities tighten up requirements. --
7) Motivation through horror stories put in the newspapers shortly before
a clinic is to be scheduled.
8) Handling immunization in the manner in which immunizations are
handled for County employees. They are scheduled in advance with ample
notice given, are readily available, and enable the employees to take care of
everything at once; something of that nature could be a way of handling immu-
nizations for school children, and,
9) Commissioners were to confer with their boards and organizations
during the coming month to determine what community groups or legislators could
do in this area and bring the information back to the Commission for dissemination
to appropriate bodies, such as C.S.E.A., the school secretaries, etc.
In evaluating the clinics, Health Department staff felt that the numbers of
people served by the special clinics did not warrant the expenditure of effort
and funds. New child screening programs which had evolved since the Imple-
mentation Plan was developed (e.g. , EPSDT and CHDPP) were providing for
routine immunization. As a result, the Health-Department decided to eliminate
33 of the regularly scheduled "immunization only" clinics. It was expected that
the child screening clinics would meet the primary immunization needs of chil-
dren, but provision would also be made for special clinics when community
interest was expressed.
The Task Force reported in October 1875 that the Health Department felt the
program would be redundant now in light of the Child Health and Disability
Prevention Program. They decided to check with the schools to find out how
effectively the new screening-process was being handled in the schools and
would give a further report at the next meeting. A question was raised about
the diagnostic center on 8th street and it was reported that it was going "great
guns." The Task Force's felt that every child should have a permanent immu-
nization card that the parent would have to show the school as proof of immu-
nization rather than the present practice of accepting the parent's word that
immunizations have been given.
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Implementation & Monitoring
Page Forty-seven
The Task Force reported in November 1975 that they had checked on
the State law requiring immunization for children and whether proof must
be provided of such immunization. They found there was no effort made to
enforce these requirements; if a child does not have proof of immunization
he is enrolled anyway. The Chairperson of the Commission said that matter
had been discussed with the Board, at which time the Health Department was
asked to see if they could meet with the schools regarding the problem. The
Health officer agreed with the Task Force that the requirement should be en-
forced and that there should be some method of ensuring that immunization has
taken place. It was pointed out that the problem occurs because 90%of the
time the school secretary or other lay people do the kindergarten enrollments.
If the parent says he left the paper at home it is then up to the school staff
to follow-up, which they do not have time to do.
With the new screening law going into effect, every first-grader is sup-
posed to show within thirty days a card indicating he has been immunized.
However, the parent still has the right to waive the whole process and not
participate. It was suggested that what should be done is to have a doctor and
a nurse present at the school at registration time, and if a child needs a check-up
or immunizations it should be done right then. Even though this would involve
some expense, the Health Department should be able to work it out.
M. Related Medical Services
in October 1974 it was reported that because of the requirement that the
Human Resources Agency implement coordinated medical services to children
under the Child Health and Disability Prevention Program on a countywide basis,
the recommendation was set aside to avoid duplication of effort. The persons
working on the recommendation were to be solicited to work with the Human
Resources Agency during the planning process. The plan and program
developed through this process was to be submitted to the Allied Services
Commission for informational purposes. In light of this, the chairperson of the
Commission suggested in June 1975'that the director of HRA or his designee
provide a status report on the program. It was also indicated at the Board
meeting of October 1975 that the recommendation was pre-empted by the Child
Health and Disability Prevention Program which was being instituted on a
i countywide and statewide basis. The Health,officer reported that about 700
s children were being seen per month and felt the intent of the recommendation
was being met.
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Implementation 6 Monitoring
Page Forty-eight
N. Children's Council
• In November 1974 it was reported that this recommendation had many
problems, as the implementation program had been put together by Project
staff because the Feasibility Team had fallen apart. The program, in -
general, was acceptable, but there were questions as to its acceptability
to the City of Richmond. The new Project Planning Group Member from
the City of Richmond had not met with the Recreation Department, and
he did not know if the $15 membership fee could be paid to the Children's
Council.
Staff asked if the "official recognition" of the Children's Council by
the Human Resources Agency (as stated in the Implementation Program)
had been checked out by the Children's Advisory Council and was answered
in the negative. It was indicated that such recognition should come from
the Board of Supervisors rather than from the HRA. A discussion ensued
as to why the Feasibility Team had fallen apart. It was pointed out that the
Project Planning Group member and the Chairperson had "vanished" into
other positions and had been removed from the Project. However, a new
Feasibility Team Chairperson had been committed to the effort, but the entire
` situation was such that a lot of catching up would be necessary.
The two remaining points to be cleared up were: 1) whether the Recre-
ation Department would be willing to pay the membership fee if there was
no accountability built into the system for the expenditure of the money;
and 2) the problem of the role of the Lead Agency. The reason the Council
was designated to act as its own Lead Agency was the lack of continuing
commitment on the part of the City of Richmond or of Model Cities. It
was stated that the Children's Council seemed to be holding itself together
and could probably continue to do so. It was also felt by some that the
Council might lose some of its authority by not being tied in with another
agency.
It was suggested that perhaps the planner from the City of Richmond
could work with the Executive Board of the Council to speak to, and go
through, the city in asking for funding, etc. The Executive Board could
do the primary planning and have control, but it would have a linkage to
the city. A discussion ensued relative to the difficulty for any group to
• remain Rutonomous while tying in staff or funding support to any one
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Implementation &Monitoring
Page Forty-nine
agency. A commissioner said it stood to reason the matter of membership
fees for the Recreation Department would have to be cleared by the City
Manager's Office. He added that he saw all kinds of problems developing
- unless some linkage was developed, and he did not think this particular
group even existed so far as the City of Richmond was concerned. Actually,
the city and Model Cities knew it existed but had not given it any official
support. A commissioner said the council might or might not reflect the
various child care centers or day care centers in West County, and what
concerned him was whether linkages could be developed for an overall plan
throughout the County. Staff asked if an assessment had been made at the
time to determine which children's council should be the one since its
formation at the time the Task Forces were meeting generated the idea by
virtue of the Expert Witnesses who appeared before the Task Force. A
commissioner added that one of the aims of the Allied Services Commission
was to do away, as much as possible, with duplication of effort and services.
Therefore, it seemed a logical decision at the time to complement and assist
that Council rather than developing another one.
A commissioner said he was not concerned about the West Contra Costa
County Children's Council's ability to meet the needs of the Commission.
What concerned him was the wording of the Implementation Program and the
politic of the process. He indicated he was trying to understand how the
West County Council would relate to what happens in East County and how
any two such councils would relate to one another. The problem would be.to
prevent duplication and at the same time provide the same services at both
ends of the County. This point of view was discussed and staff compared
the process with that of developing the Alcoholism Advisoy Council, which
spelled out its linkages to the countywide Alcohol Advisory Board. A com-
missioner said the aim was to tie into as many agencies as possible but that
what seemed to be emerging was the opinion that there is no other way of
meeting the children's needs than by tying into Social Service, It was pointed
out that the Implementation Program states that the Children's Council
would be separate and apart and yet have the cooperation of several other
agencies. These agencies, however, were going to ask for accountability.
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Implementation 6 Monitoring
Page Fifty
Since the Commission was not able to resolve the issues at that meeting,
the Chairperson suggested returning the Implementation Program to the
Feasibility Team for rethinking of the problems with regard to Model Cities
and the Recreation Department, the accountability of money, and the lack of
any real commitment from some of the agencies. It was decided that someone
from the Children's Council would be asked to speak to the Commission at its
next meeting regarding its ability to carry out the Implementation Program.
In January 1975 it was reported that a social program planner had been
assigned to develop a funding proposal. Being totally voluntary, the Council
had suffered from the problem of having too few people willing to pitch in to do
the mundane work except for special projects. It was assumed that with the
commitment of Allied Services agency staff, standing subcommittees could be
established to-do necessary tasks, but agency staff had not stepped forward
to fill the gap. The loss of services from persons whose new job assignment
made them less available made the Allied Services commitment even more
crucial to the life of the Council. Tasks to be completed included: Incorpora-
tion, since the Allied Services agencies cannot be asked to pay the dues
agreed to until this is accomplished; establishing a billing and accounting
procedure to handle funds once incorporated; establishing a method of using
the volunteer clerical assistance (using each agency in rotation for typing,
printing, mailing) .
At the May 26, 1975 presentation to the Allied Services Board, Social Ser-
vice indicated the Council had a need for a paid director and a secretary,
The Richmond Unified School District had provided meeting space but clerical
support was still a problem. There was also a need for official recognition
by the City of Richmond and for "official" paid membership by the agencies
who agreed to participate. The Council had established by-laws and a record-
keeping system. Since Social Service was providing most of the clerical sup-
port, the city of Richmond was asked to look at the possibility of providing
some assistance.
At the June 17, 1975 meeting of the Allied Services Board-Allied Services
Commission, a representative from the W.C .C .C .C.C. reported they had be-
come incorporated. Clerical staffing continued to be the biggest problem
(although the entire personnel matter was a problem) , since all the staff were
volunteers and could not provide all the time needed. A publicity chairman
had been elected and a Ways and Means Committee established. The Chair
asked the representative from the.City of Richmond what the possibility was
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Implementation & Monitoring
Page Fifty-one
of the City of Richmond providing clerical support. It was indicated that the
clerical problem is difficult because the Council does not need a full-time clerk,
and there was difficulty in locating a part-time staff person to do the job. CETA
Title H was oversubscribed, and until such time as information was received
about new funding no specific answer will be available. However, they had
not given up on the possibility of "highjacking" a clerk until someone could
be assigned J time or I time. As for as the Social Planner, there had been a
change in staff and the person who started but with the program was no longer
with the city. The new person was trying to become abreast of all his duties,
including his assignment to the Children's Council, but his newness in the
position made it difficult for him.
In October 1975 the Task Force reported that it had recommended that a
Children's Council be established and then learned that the West Contra Costa
County Children's Council was in the process of being established. It there-
fore gave its support to formation of that council and to that extent felt the
recommendation had been accomplished. However, it had hoped that more
would have been done by now through cooperative efforts of the Allied Ser-
vices agencies. The Council needed such things as space, clerical services,
a telephone, and equipment -- all in one defined location. The Social Service
Department was helping out as it could with clerical services, but the City of
Richmond had yet to provide part-time clerical help. The Council was plan-
ning to contact the City for possible space in the P and X Building.
The work of the Legislative Task Force which encompassed Implementation
Plan II (Information Sharing) was presented in a special report, June 1975.
(Copy provided)
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Disposition of HRA
Page Fifty-two
DISPOSITION OF THE CONTRA COSTA COUNTY
HUMAN RESOURCES AGENCY (HRA)
During the final quarter (October-December 1975) the Commissioners dis-
cussed alternative dispositions for the Contra Costa County Human Resources
Agency. After examining the history of the Agency, the Commissioners felt
that, based on available information relative to the initial development of the
Contra Costa County Human Resources Agency, there are no measurable ob-
jectives by which the Allied Services Commission could ascertain the degree
to which this agency had been able to fullfill its overall goal. Without this
frame of reference, it proved to be difficult to recommend any definite course
of action; however, the group developed some comments and/or suggestions for
consideration by the County Board of Supervisors.
ASSUMPTION #1: The Human Resources Agency as Integrator of Human
Services Programs
If the Human Resources Agency was envisioned as an agency designed to
coordinate and integrate the delivery of human services within Contra Costa
County, its concerted efforts would necessarily be directed toward effective
services delivery. Assuming this was true, one of the major considerations
should be to invest appropriate authority in the administrator of the HRA to
deal effectively with the traditional reluctance of the various departments/
agencies to consider possibilities for reordering priorities of operative pro-
grams and the tendency for departments/agencies to be protective of individual
,turfs, to institute mechanisms to minimize duplication of efforts, and to command
support of County government. This had not happened, and HRA administra-
tion had only been able to do what the various component parts of the HRA
allowed, while specific Board-endorsed policies needed to make this concept
a reality had not been developed.
The Commission felt that human services integration as a basic concept was
a good and needed service but was concerned about where Contra Costa County
would find administrators and staff in the various programs committed enough
to this concept to make it work effectively. It also felt it was certainly neces-
sary for Contra Costa County to move ahead in long-term planning for human
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Disposition of HRA
Page Fifty-three
services programs and to examine the feasibility of budget consolidation and
joint funding. To date the services integration concept had not been given
serious consideration as an ongoing administration priority, and the tools _
required for such an activity had yet to be identified.
The administrators of the Human Resources Agency had not been able to
spend adequate time developing a mechanism to effect the concept of services
integration; rather, their time had been spent "ironing out rough spots" and
"keeping the lid on." This had not generated a working environment con-
ducive to initiating programs of institutional change in the direction of plan-
ning for future human services delivery. However, without sufficient authori-
ty to institute change, the possibility for organizing a viable mechanism was
limited.
When the Board of Supervisors deliberate on the fate of the Human Resources
Agency, the Commission feels one prime consideration should be the number
of personnel which would be required to develop and carry out an effective
services integration mechanism. Of foremost significance is the kind of
background, training, and abilities necessary for the person•or persons
responsible for these efforts to be effective facilitators of such an inter-
vention. The major concern the Commission had was that such an agency
could become a prime example of staff and service duplication and ineffec-
tiveness. If serious consideration is given to instituting on a permanent
basis an agency requiring additional oulays of funds and personnel, the
Commission also questions the logic of such a move when crises abound in
some of the County's services delivery programs.
The Allied Services Project clearly identified many of the internal problems
and issues which would impede implementation of an effective human services
integration program. The Commission recommended that these elements of
truth be utilized to the fullest extent in determining what is needed in Contra
Costa County to improve the quality of services delivered and the effective-
ness thereof. In addition, it felt the utilization of citizens to define the
most meaningful course of action from the consumer point of view and to help
set policies for program priorities and intervention should be held in high
esteem, since Contra Costa County had been in the forefront to some degree by
its willingness to test this concept in relation to human services delivery.
Whatever mechanism is determined.to be necessary to facilitate human services
delivery should definitely have a citizen consumer;component.
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Disposition of HRA
Page Fifty-four
ASSUMPTION #2. The Human Resources Agency as a Fiscal Agent
If the Human Resources Agency was assumed to be only a fiscal agent, then
the Commission felt it is not necessary to duplicate the efforts and the kinds of
personnel already available in the individual departments and in the County
Administrator's Office. It concluded that it does not require another agency to
ensure fiscal responsiblity and accountability; rather, a concerted effort on the
part of the County Administrator to see that the departments/agencies maintain
adequate fiscal controls should suffice.
If the Human Resources Agency in its role as a fiscal agent is considered
to be more or less an arm of the County Administrator's office, and therefore
comes under its direct supervision, this would constitute a serious mistake,
because this would upset the balance between program responsibility and
fiscal restraints. Both the programmatic area and the fiscal control area need
equal advocacy, and to establish the HRA under the County Administrator
would hamper tremendously the program element.
CONCLUSIONS:
Even though some ongoing cross-communication had been initiated among
administrators of departments in the Human Resources Agency and activities of
the Allied Services Project had generated dialogue between administrators and
some agency staff, the sum total of these efforts does not warrant the mainte-
nance of a whole agency. If a longterm agency under any name is to be con-
sidered, the Commission feels it is necessary that the Board of Supervisors
establish some measurable objectives consistent with some longterm positive
goals established in the best interest of human services delivery.a
Comments 5 Reflections
Page Fifty-five
COMMENTS AND REFLECTIONS
During the December 1975 Commission meeting, staff announced that the
Board of Supervisors had taken action to create a countywide feasibility study
committee; which would take what had been learned in the Project experience
and try to develop a model for better countywide decision-making for submission
to the Board, In doing so, the Chairman of the Board of Supervisors was au-
thorized to send a letter to the U.S. Department of Health, Education, and Wel-
fare asking for a six months' extension of the Project to work solely with the
feasibility study committee to develop within five months the countywide de-
cision-making process. The feasibility study committee was to be broadbased,
with commitments from the cities, the unincorporated areas, city and County
advisory boards, and hopefully some members of the Commission.
Discussion ensued as to the possibilities for success of any such study for
development of a human services governance mechanism in the County. Com-
missioners expressed great frustration with the system as it now exists and
questioned the usefulness of making study after study with no real change ever
taking place. Staff indicated that what constitutes the current decision-making
process in the County is not now known, so the committee will be looking into
what that process presently is and trying to come up with something better.
The Board itself, hopefully, would be involved in the study. The group took
this opportunity to reflect on the experiences of the Commission. Members of the
Four Social Problem Task Forces made the following special comments.
Chairperson, Substance Abuse Task Force
"Madam Chairman and fellow Commission members: It has indeed been a
pleasure to serve with you in spite of our disappointments as well as our
accomplishments. The Commission has proved to me personally that
people of various faiths, beliefs, and races can work together toward a
common goal, The Commission experience to me has been a great one,
and it brings a little sadness to my heart to realize this is a final meeting.
As a former Chairman of the now defunct Substance Abuse program or
Task Force, I have been frustrated, disappointed, and elated at the
implementation of some of the recommendations.
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Comments & Reflections
Page Fifty-six
Frustrated at the legislation by the State which, effective January 1, 1976,
• requires the establishment of a .separate Office of Alcoholism in the County.
This effectively precludes the depth of consolidation initially recommended
by the Task Force. At the time, it was asked that the Task Force find ways
to consolidate various programs in order to cut down expenses and red
tape, and that the State passed legislation to the contrary was a disappoint-
ment indeed.
Discouraged about the referrals in the Richmond Police Department. There
have been only a small number of referrals; young patrolmen do not see
this assignment as meeting their needs..
Elated that the detoxification program has been carried out practically
as recommended, as have some other recommendations. The overall
experience has not been in vain.
I wish the staff that worked with us so faithfully, as the French say:
'a bon via'. And to the rest I say 'sayonara' and God Bless."
• Chairperson, Career Education Task Force
"It is my overall feeling that this Commission has done more work than
any other community group I know of. Other groups have not involved
themselves as we did with various organizations. The Legislative Task
Force went all out from the very beginning and got its material together
and made a final report. Our Task Force has never gotten together a
formal report as such.
Overall, I feel we did make a dent; this is the first time this has ever
been done, so I feel this has been a very important segment of our
County and I am delighted to know that the Board of Supervisors saw
fit to extend the Project for another six months. I really feel something
will come out of the study; it is really needed. There are services
that overlap, and I feel we can jack up quite a few people by asking
questions and making the establishment work our way by making
things that are already going on work properly for the community
rather than by establishing new things.
Y 3- °"`� a;ti�2 'SA' � ,�,1r' ��:' ��s*��F,w--:1�y t•s,z_„ 2 k�x'''6,r��,�Fra;"#�.�w .a 'C"O.E�i ��x� "5 �,r.��Sx�,uT.§�.. �fs.�f� 4 �`f1 k��s,z -.E1,y���2'rFH�y,i vim, }��,� �X� �.
C M3.` �. � � } i'M'SK 3� •4� S.":...n } Y7Y M T(Kt. '� s F, N j A"�q.i � "LS
Comments & Reflections
Page Fifty-seven
I want to echo the Chairman of the Substance Abuse Task Force's
comments about this being a very good group that has worked
together beautifully."
Chairperson, Services to the Elderly Task Force
"To begin with, let me say that at the first two or three meetings I
attended of the Allied Services Commission I figured it would be a
'nothing' commission, as I had grave doubts that with the make-up
of the Commission we would ever come to any agreement on anything.
In future meetings I was to learn how wrong I was. As we were
formed into Task Forces, we really had some knock-down, drag-out
meetings, but ended up in agreement and friends. As I have said
before, this Allied Services Commission has been a good experience
and one that I enjoyed.
I am sorry that the implementation program developed by the Task
Force for Services to the Elderly really wasn't very practical. It
seemed a good idea but in staff application was not successful. Ex-
perience with both the on-site and field portions of the program
indicated that the 'treatment' model team was not a favorable one in
terms of both administrative problems and the needs of clients --
rather, a well coordinated and easily accessible service system was
a more viable goal.
I am very much in favor of the 'Allied Services' idea. We have learned
a great deal, and it seems a shame to stop now. We know what is
needed and wanted -- now should be the time for 'action.' Our ex-
perience as Allied Services Commission members proves beyond a
doubt that all kinds of people have basically the same kinds of problems,
etc. , and through working together can come up with solutions agree-
able to all concerned.
Our Task Force at least got some problems out in the open; personally,
I learned things about the elderly and their problems that never
really occurred to me before. With a little more time, more discussions,
cooperation from County department heads and staff, we could
go a long way toward solving some of these problems at a saving
to the taxpayer."
''+,a. "Y
a�fi���'��7y� '",:h,� �f`2," .1tk ,,; z ` t nR,.`•,{a'*; F .`st'4,b a'',7°•1��'^z`L�'f i�',M :'PS.,.�t., `?s'sr��y;� '
Comments & Reflections
Page Fifty-eight
Chairperson, Child Care Task Force
"When I first came to the Allied Services Commission, I came, as did the
Chairman of the Service to the Elderly Task Force, with some cynical
thoughts that this was something that was not going to accomplish very
much, because I thought it would be impossible to get the empire buil-
ders and the various groups composing the Allied Services Board to
really get behind something like this. After getting more and more in-
volved, I began to think I had been too cynical and that this would work
out after all. I thought the Allied Services idea was an excellent one but
felt it would be difficult to accomplish anything; the Task Forces' actions,
however, gave me a lot more hope.
We worked with very enthusiastic people and got a good view of
the problems and good ideas about solutions to those problems. This
was a very positive experience, and I felt even better when we came
through it with some excellent and not-too-difficult-to-achieve solu-
tions. My initial cynicism came back when we started trying to bring
some of these simple and inexpensive programs into being. Aside from
a couple of night immunization clinics and other small gains, I feel
our Task Force had very little real effect. I feel this is due to the fact
that it is very difficult for the various agencies to work together and
to give up to one another or to an advisory board some of their real
power, but to a small extent I feel we have brought this about. I
agree with what the Project Director said about the creation of the
feasibility study committee. Our three years of work has had enough
influence that they are at least willing to keep considering the idea,
and if enough people with enough power can come through with some
practical ideas for consolidation of services, it will make things better
for both the taxpayer and for the clients.
I really enjoyed the past three years of the Commission and have made
good friends. I hope it will continue to get together to take a look
at what is going on in the County."
moi. 1� 1" ' F p`l k'di 'k', ``` ,1`e-t % i4... fir• ";*y a"5+Y2 ; `r
i£iK
' `yt v"/a., "4+k„';s..Fw.' `�*r` tR'.zf;�v' .q,,'..d< ”` i .0 yy'q. --.F / w:: } .t,h LL, a }_; a u .:1 r. t ,,,A], Cs.c d':'.'�r• $sh, „' , px �', 'tt Ufa,
Comments & Reflections.
Page Fifty-nine
The Chairperson of Services to the Elderly Task Force amplified further
on his remarks about looking around during the early Commission meetings
and thinking it would not be a good Commission. He said that for the last ten =
or fifteen years he has been on so many committees he has just about "had it.
He was one of the original members of OEO and became very disgusted be-
cause if ever there was a do-nothing group that was it. So he began by
thinking the Commission would have a few meetings but would not get very
far. He said he didn't know how the rest of the Task Force felt, but he found
that while there were a few disagreements they all ended up very agreeably
and in a friendly manner. However, he still did not think anything construc-
tive was going to happen until a way is found to put a little more "heat" on
the Board of Supervisors. Other Commission members agreed with that view-
point and lauded the high degree of cooperation and enthusiasm of most of
the staff people who helped the Task Forces develop the recommendations.
Staff added that the Project experience had demonstrated that there was
nothing wrong with the community or with the agencies at the staff level, nor
was there with the Board of Supervisors. It is important to recognize that
decisions are not made at the Board level. The Board merely ratifies decisions
that are made elsewhere within the County structure at the department-head,
administration, middle-management levels. The Board of Supervisors cannot
give up its decision-making powers, but it can have a staff that is amenable to
working with the community.
A Commissioner said one more thing ought to be included in a final report
of the Commission: the fact that the Project Director and staff deserve a great
deal of credit for working as hard and as effectively as they did to bring about
whatever success the Project and the Commission have achieved over the past
three years. Other Commission members expressed agreement. Staff acknow-
ledged those remarks with thanks and appreciation and responded with ex-
pressions of appreciation to members of the Commission for their dedicated and
continued efforts; they expressed hopes the countywide counterpart will be
as easy to work with.
eT .� t ! :a4 4'3i, '1 '''•°l. 4,'r1 3"��3;' x' i`x "k
S1�`�t Ft(4
,, �tF f;x�r �,�-k,2' t i;} t ;. t ,v..' .• � `'(r bw:�.�.e.� ��`3'^,�' tS'a�"�`��"' � "�.;'CVs�` � ' �+ „k" '.k`��f{
Comments & Reflections
Page Sixty
The Final Evaluation of The Allied Services Project
The Committee charged by the Commission to write the Final Report
discussed the contents of the Final Evaluation of the Allied Services Project
i and took exception to some of the evaluator's findings.
Organization of (Task Forces etc).:
The "personnel" of the Task Forces was not accurately described.
Statement of Objectives: The evaluator derived his own goals and objectives
for the evaluation after the fact rather than sticking with the original goals and
objectives established for the Allied Services Project. Thus, some of the negative
results set forth in his evaluation are invalid due to the two separate composites
of project goals and objectives.
Objective one: Even though he stated that the objective, "To create a
citizens' group which is representative of the human services consumers
in the City of Richmond", was attained, he desired a change in the kind of
community representation in the Allied Services Commission to, in essence,
create a Commission environment which would breed failure. He suggested
"recruiting personnel who have not had extensive involvement as community
"representatives". This appears to imply that the evaluator would have
preferred a group of Commissioners who would "proceed like a lamb to the
slaughter without saying a mumbling word." The Commissioners insist that
a high level of sophistication in the area of consumer advocacy for human
services is pecessary for survival. Further, he does not state the basis on
which he draws the wrong conclusion that "It appeared that many of them
had been advocating various problem solutions for some time without consulta-
tion with or consent of the citizens of the Richmond community." It is unclear
whether the evaluator was implying that the "community" did not feel "a
measure of closeness" to the Commission.
Objective three: The agency heads did not make a formal statement to the
Commission regarding the ability of the Commissioners to "validly designate
the most relevant needs of their community".
`s r�
+"''i s; ,c R•;v'�:L-i
tW+`„ 1��w i `S.'�5,"`g ^af fi" ;�3 ��, j"jt�4.;s,.t„ r SZ'ti tom., x``.,��i�� a .j`SJ�.*4�d`re .r.%.Pr._sr, .4 1�5 ek4.+`._,S;.i ifi.r:kt���.$`S ^-ii 1, ;; .a s,y<.'v.'J's�,'�i'.�d•'
Comments $ Reflections
Page Sixty-one
Objective five: The recommendation the evaluator made regarding the "efforts"
he perceived to be appropriate to "weld" the Commission and the Baord into
a "cooperative body" may have been counterproductive depending on the -
issues involved. There is no assurance that these efforts would have given
rise to a "cooperative" spirit. The Commissioners did utilize these efforts
to a degree with some disgression as to when they were appropriate.
Objective six: The statement with reference to personnel coercion is
unclear, as it was the understanding of the Commission that the participation
of the agencies and groups was originally determined on a voluntary basis.
Objective six: The statement, "During Phase Two, many Board and Commis-
sion members simply drifted away from the Allied Services process because
they felt it had never worked," should be clarified, as the Commission and
the Board might have had dissimilar feelings/attitudes for different reasons.
The Commission carried out its commitments and sent its recommendations/
plans forward to the Board and awaited appropriate action. This is not
necessarily a "drifting away" rather a completion of tasks.
implications (Fiscal and Legal Changes)
The Commission did not advocate disbanding the categorial fund approach
until there-was some assurance that these special target groups will receive fair
consideration of their respective needs.
2 '
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APPENDIX A
• _ORGANIZATIONS THAT PARTICIPATED IN
.THE ALLIED SERVICES C MISSION
Alameda/Contra Costa Medical Association
American Cancer Society
Area Council of O.E.O.
Black Business and Professional Organization
Central Labor Council
Concerned Parents' Task Force
Coronado Neighborhood Council
Council of Richmond Industries
Countywide Youth Program
Domestic Action Coalition '
Food Advocates
Greater Richmond Interfaith Project
Iron Triangle
Las Deltas Tenant'Organization
League of Women Voters
Model Neighborhood Community Board
North Richmond Neighborhood House
Opportunity Children's Center, Inc
Parchester Interim Planning Committee
Parchester•Planning Council
Richmond Black Caucus
• Richmond Elementary Council, PTA
Richmond HumaWRelations Commission
Richmond Welfare Rights
Rollingwood/San Pablo Senior Citizens
Senior Citizens Drop.-in Center
South Side Center
South Side Council
United Council of Spanish-Speaking Organizations
West Contra Costa County Children's Council
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APPENDIX B
• ALLIED SERVICES PROJECT
Task Forces Membership
SUBSTANCE ABUSE (Formerly Drug Abuse - Alcoholism)
Chairperson: Isaiah Winn
Task Force Members: Betty Williams
Nate Turner
Skip Skeen
Don Miller
Howard Lader
William Hall
Willie Dorsey
Nathaniel Bates
King Hulsey
Primary Staff Person: Zach Stadt, M.D.
Back-up Staff Person: Tom Farnsworth
----------------------------------------------------------
SERVICES TO THE ELDERLY
•` Richard Kelley
Chairperson: (12) Tubby Snodgrass
Task Force Members: Betty Stiles
Charlotte Sossamon
Charlie,Short
Ada Pierce
Myrtle Hunt
Ethel Hasmann
Ruth Hansen
011ie Mae`Chapell
Juanita Minor
Primary Staff Person: Eleanor Thompson
Back-up Staff Person: ------
------------------------
LEGISLATIVE
Chairperson: (1) Ethel Dotson
(2) Mary Blackburn Wilson
Task Force Members: Manuel Estrada
Kagey Dorosz
Bob;Clark
Eddis Harrison
!w Frances McDis
an
•
tiPrimary;Staff::Person Toni Morioka
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',tr 'S1`•rf, ai':i. :1 { tt it S". '• Fs al't..,-.:' k. 1 iV..±' + ;h.-. ('tf,r'aK F +�;k'ii J... {.s, •u , ',%C 't i },J....xJ SQA 0. ,
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s
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Appendix B (continued)
Task Forces Membership
• CHILD CARE (Formerly Child Care for Working Mothers)
Chairperson: Frances McDaniels
Task Force Members: Charles Wilson
Luigi Toscano
Judy Tate
Lisa Radpour
Carol Justus
Jessie Johnson
Ethel Holmes
Eddis Harrison
Mary Hall
Roberta Griffin
Ruby Anthony
Primary Staff Person: Edna Hilty
Back-up Staff Person: Pat Jones
----------------------------------------------------------
CAREER DEVELOPMENT (Formerly Truancy.& Drop-Outs/Unem-
ployment of Young es/Lack of Vocational Alternatives)
{ Chairperson: (1) Hazel Hall
(2) Juanita LaBeaux
Task Force Members: Raymond.Thomas
Roseanne Smith
Henrietta Scott
Perkins Lovelace
Mary Lacy
Dorothy,Hackett
Maxine'Eason
Zelda DePaoli
Earle.Carr
Lucy Brown
Merle;Bracy
Primary Staff Person: Ben Levin
Back-up Staff Person: Ed LaPlace
f i
S.�
} t _
m
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r
Appendix B {continued)
Task forces MembershiL
BYLAWS COMMITTEE
Mary L Blackburn-Wilson
Chairperson:
Task Force Members: Kagey Doxosz
Bob Clark
Manuel Estrada
Charles Wilson
Primary Staff Person r
Back-up Staff Person
.F _ _ _r --- --- ---lw
— ---- ---
COMMITTEE TO DgyELOP FINAL REPORT
# Mary L Blackburn-Wilson
Chairperson:
Robert Clark
Task Force Members: Dorosz
Kogexy,
Juanita LaBeaux
lo Francis Mobaniels
Tubby Snodgrass
Isaiah Winn
Primary.Staff Person
Back-up
Staff Person
't -
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APPENDIX C
ALLIED SERVICES COMMISSION
• OF
DESIGN OF A PRE-TEST OF THE ALLIED SERVICES
ACT PROJECT
PROJECT PURPOSE
The Design of"a Pre-Test of the Allied Services Act Project (referred to in
this document as the Pre-Test Project) shall work to reorganize the human
service delivery system of Contra Costa County to:
a) Ensure maximum coordination between all pertinent elements in
facilitating access to, and to improve the effectiveness of, all the human services;
b) Assure accountability of the providers of these services to the consumers
of the Project area;
c) Enhance utilization efficiency of human services resources;
d) Assure maximum participation of the Project area in the identification
of their needs and in continuing evaluation of the human service delivery system,
so as to achieve maximum personal independence, dignity, protection, economic
• self-sufficiency, physical, social, and mental wellbeing of individuals and families
through the establishment of an effective and efficient human services program.
COMMISSION PURPOSE
The Allied Services Commission shall bring to the human services system the
desires and the strengths of the community at large and shall work with all service
constituents to assure that the community is the ultimate beneficiary of the activi-
ties of that system.
BY-LAWS
ARTICLE I
COMMISSION ORGANIZATION:
Section 1. Name -- This group shall be known as the "Allied Services
Comm s�?r hereafter referred to as the Commission.
Section 2. Organization -- The Commission is a confederation of community and
professional groups and organizations. Officers are elected by the general mem-
bership to
em-bership.to serve as administrators of the Commission's business. These officers,
Tk y., r �X.�. „gt r.f.�... �"•,i.�'3x.+ t.�F ,a � -,.?,.. ,:,- j x 5 .t 1 ri d.: ,Y 1.g}".'N,rt E1 "k
.n..t`�< ,��r;;e ��r v.-+X11`c •'�, ;'Xk '� 1 .: tx'r�"iiA' 1?k q .,y,-fr x- irk��k �. �+,'M13yy�. '�; S J `s .\ r a era � .s1 s� gh�,y^'r'�_�
>'s� ;q, . . ,'�xg•L-'1..4W,q�i. $,,,+'T� ka=._'„ -=a'atF.,S� � 1�.r,.u.�'. .. s �..r Twit��.k gT.s,,y�.�'�a �rky��.�(` �.�.,; W gU�'�+$.�e..,Cka ;Fu +�rs.���� -"�
Appendix C (continued)
By-Laws
Page Two
together with representatives from each committee, comprise the Executive
Board, which is the governing body of the Commission.
Section 3. Affiliations -- Upon acceptance by the Executive Board, the
Commission may affiliate with local organizations and/or groups consistent with
its purposes.
Section 4. Commission Autonomy -- The Allied Services Commission is an
autonomous body.. Actions by this body shall not be nulified by anyone other than
Contra Costa County Board of Supervisors. Action taken by the Executive Board of
the Commission shall be binding upon all activities of the Commission, subject to
review and ratification by the full Commission.
ARTICLE I1
COMMISSION MEMBERSHIP:
Section 1. Eligibility for Membership -- Eligible for membership are community
and professional organizations and groups and individuals living or working in the
Project area. Each organization or group shall delegate one (1) representative and
one (1) alternate to serve on the Commission. Persons eligible shall be granted
memberhsip without regard to race, creed, sex, national origin, or political affil-
iation -- membership shall not be limited.
Section 2. Membership Status
A, Active Members -- Active members are those current in attendance
of the meetings who are within the jurisdiction of the Commission
and have full rights and privileges. Current attendance means not
having missed three (3) consecutive meetings. If this should occur,
the member is subject to recall failing a valid excuse. Article III,
Section 7, shall apply.
Section 3. Rights and Responsibilities -- Active members have the right to
attend meetings, vote, hold office, and participate in all Commission affairs. They
have the responsibility to work to fulfill the purpose and accomplish the goals
of this Commission.
Section 4, New Members -- To add a new member organization or member-at-
large to the Commission, a request shall be presented to the Executive Board of
the Commission for review and presentation to the Commission membership for
ratification.
Section S. Member Replacement -- A vacancy in the general membership shall
be filled-in tie manner described in Article II, Section 4.
Yi5 1 lf y,.,•K � tv4A�Z � '.^{`�t+i;�� :C#.:t, k£ 4�4.*.4"T t{4 } w}¢�#' P3'l� Rfi L ,Yr? ..';F fG y�1y YL�,�� �g �� c�T.- "`,. ;y+
�,� XY.,,�.. ,,�€otx.�r..,,�;'✓r�, �"" ,�, r�y��ryk � w � 3'x$'1-= 'y` r 9 s" 3 � :+: � v�t' r ?€`:c' ,,' :�, s fi
Appendix C (continued)
By-Laws
Page Three
ARTICLE III
GOVERNING BODY:
Section 1. Membership -- The membership of the Commission shall be the
final governing body of this organization. It may delegate authority to its
Executive Board to fulfill the responsibilities with which the membership has
charged it.
Section 2. Commission Officers -- The affairs of this Commission shall be
admin stere by four (4) officers: Chairman, Vice-Chairman, Secretary, and
Fiscal Officer, as directed by the Commission's Executive Board, The titles,
duties, selection, dismissal, length of office, areas of responsibility, and any
other responsibilities of the Commission officers shall be designated by the Com-
mission Executive Board ratified by membership.
Section 3. Executive Board Members -- The members of the Executive Board
shalf const of the Chairman, Vice-Chairman of the Commission, Secretary, Fiscal
Officer, and Chairmen of each of the following sub-committees: Program, Publicity,
and Legislation.
A. Chairman
1. The Chairman shall be the executive officer of the Commission, and
shall preside over all Commission meetings.
2. The Chairman shall be one of the Commission officers authorized to
countersign all orders and policy agreements concerning the Commission.
3. The Chairman shall have the authority to appoint any ad hoc committee
necessary to the functioning of the Commission,
4. The Chairman shall be an ex officio member of all committees; he shall
have voting rights as a member of the Executive Board of the Commission
and shall vote on full Commission matters only in the event of a tie.
S. The Chairman, in the event of a vacancy to any office, shall jippoint a
member to fill that office, with ratification by the Executive Board, until the
next election.
1
6. The Commission Chairman shall serve as the voting representative of
the Allied Services Commission to the Allied Services Board.
B. Vice-Chairman
1, In the absence of the Chairman, or in the event of the Chairman's inability
to serve, the Vice-Chairman shall assume the duties of the Chairman and
such other duties as assigned to him by the Chairman.
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� .;'
Appendix C (continued)
By-Laws
Page Four
C. Secretary
1. The Secretary shall be responsible for receiving all correpondence
and communications on behalf of the Commission.
2. On direction from the Commission Executive Board, he or she shall _
respond to correspondence and communication.
3. The Secretary shall be responsible for maintaining membership records,
including a current membership list, addresses, and phone numbers of
the members.
4. The Secretary shall be responsible for the distribution of Commission
materials.
5. The Secretary shall be one of the Commission officers authorized to act
in behalf of the Commission.
6. The Secretary shall keep a correct record of the proceedings of all
Executive Board, general membership meetings, and be responsible
for distributing a copy to the membershin;prior to the next general
membership meeting.
7. The Secretary shall be responsible for filing a copy of the minutes of
all meetings with the Allied Services Board in accordance with the
Commiission By-Laws.
D. Fiscal Officer
1. The Fiscal Officer shall be responsible for the fiscal activities of the
Commission and shall maintain complete records 6f the fiscal activity
of the Commission.
2. He/She shall present the Commission fiscal activities to the membership
for ratification.
Section 4. Elections
A. The annual elections will be held in June, and officers shall serve from
July 1 through June 30.
B. The Commission officers shall be elected by the general membership by
majority vote by secret ballot.
C . Provision shall be made for absentee ballots.
D. The elections shall be conducted by an election committee selected by
the Chairman of the Commission, which shall consist of five (5) members
who are not candidates for an office in the election. This committee will
be responsible for validating ballots and publishing the results of the
election and to assure that the statements of candidacy are available to
the membership.
Appendix C (continued)
By-Laws
Page Five
E. The candidate receiving the majority of votes cast shall be declared the
winner. In case no candidate receives a majority vote, there shall be a
runn-off election between the candidates with the highest number of votes.
Section 5. Nominations
A. Nominations shall be accepted from the floor of a general membership
meeting in May, with the consent of the nominees.
Section 8. Term of Office
A. No officer may serve for more than two (2) consecutive terms.
Section 7. Recall
A. Recall may be originated by a petition signed by at least 30 percent
of the active membership submitted to the Executive Board of the
Commission. After the recall has been originated, the Commission
Executive Board must refer the matter to a general membership meeting
of the Commission within 30 days of the presentation of the recall
petition. Before the secret ballot is taken, the member being recalled has
the right (within 30 days) to make a presentation relative to the recall
against him. Upon majority decision of those present and voting, the
recall will be presented-to the membership for secret ballot. A majority
vote of the entire Commission shall decide the recall.
Section 8. Vacancies
A. , An office shall be.declared vacant when a member of the Executive Board
resigns from his office or is recalled, or a Commission member resigns
from the Commission or is recalled.
B. An office shall be declared vacant when the holder of the position is
absent from five consecutive Executive Board and general membership
meetings without excuse for good cause by the Executive Board.
C. Office vacancies shall be filled by a majority vote of members in attend
ante at a general membership meeting.
D. Those persons resigning from office shall submit a letter of resignation
promptly to the Executive Board Secretary.
E. Vacancies in the general membership shall be filled in the manner set
forth in Article II, Section 4.
Section 9. Commission Membership Meetings
A. All meetings of this Commission shall be conducted in accordance with
the Commission's by-laws and with Robert's Rules of Order.
B. The Commission shall have regular monthly membership meetings.
C . Special membership meetings can be called by the Commission Executive
Board or by the petition of ten percent of the members.
D. Members shall receive Witten notice at least 48 hours in advance of
time and place of all special membership meetings.
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C
Appendix C (continued)
By-Laws
Page Six
Section 9. Commission Membership Meetings (continued)
E. Any action taken by the majority of the full membership at a general
membership meeting shall prevail over any contrary action taken by
the Commission Executive Board
F. All meetings shall be open to all members.
G. Fifty percent of the total membership shall constitute a quorum for
all regular and special membership meetings. .
Section 10. Commission Executive Board Meetings
A. The,Commission Executive Board shall meet at least once a month.
B. A majority of the Commission's Executive Board constitutes a quorum.
C. Special meetings may be called by the Chairman of the Executive Board
upon the written request of one-third of the members of the Commission
Executive Board, or upon his/her own initiative.
Section 11. Negotiations (Executive Board)
A. The Executive Board of the Commission shall serve as the Negotiating
Committee for the Commission when necessary.
ARTICLE IV
RESOURCES:
Section 1. Funds
A. All expenditures up to $25.00 require approval of the Executive Board.
All expenditures over $25.00 require approval of the general membership.
Section 2. Records -- Financial records of this Commission must be kept at
least four (4) years. They must be audited annually by an independent auditor.
Section 9. Technical assistance shall be provided by the appointive authority
of the ounty Board of Supervisors.
•
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'Appendix C (continued)
By-Laws
Page Seven
ARTICLE V
AMENDMENTS:
Section 1. Proposed amendment(s) to these By-Laws may be originated by
a ma ority vote of the Commission Executive Board or by a petition signed by at
least ten percent of the active members.
Section 2. The Commission Executive Board shall provide a copy of such
proposed amendments) , along with the original sections) of these By-Laws, to
every active member of the Commission for review prior to voting.
Section 3. The proposed amendment(s) shall be discussed and adopted or
rejected 3y a majority of those members voting in a special election by written
ballot.
ARTICLE VI
RATIFICATION:
Section 1. Ratification -- Upon formal acceptance of these BY-Laws by two-
-7 o toss eligible Commissioners attending at the ratification meeting these
By-Laws shall be considered ratified
.^
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yl' i 7'
ALLIED SERVICES COMMISSION
September 11, 1975
MARY BLACKBURN WILSON ETHEL HASIIANN
Food Advocates American Cancer Society
2288 Fulton St. .��;�-:".�h� ,�-m,e� l029o��la�e'lusC�Su�
Berkeley, CA 94704 642-491.1 - # d, CA 9,1.894-
JY536 5�S—G FlOI
LARRY BUTLER ETHEL HOLLIES
Richmond Black Caucus South Side Center
726 S. 49th St. 462 Spring St.
Richmond, CA Richmond, CA 94804 234-1591
BOB CLARK ; '',' "� -- MYRTLE HUNT
Domestic Action Coalition South Side Council
2710 Wiswall or 237-5518 (Confd) 1815 Maine Ave. 237-9030
P. O. Box 1089 654-9573 Richmond, CA 94804 236-0440
Richmond, CA 94804 - "
JUANITA LA BEAUX
MARY Y. DAVIS Community Representative at Large
Community Representative at Large 745 S. 14th St.
1750 Garvin Ave. Richmond, CA 94804 235-4797
Richmond, CA 234=0895
CHARLES MASON
ZELDA DE PAOLI Countywide Youth Program
Community Representative at Large 247 Rodeo Ave.
1714 Harrold St. v Rodeo, CA 94572 799=3171
Richmond, CA 94801 232-6869
DIANNE MCCLAIN
KAGEY DOROSZ -Nor'th-RtchMDfi? NFj---VnbornR0a House
Central Labor Council �g� -Richmond,
320 - 13th,St. D Richmond, CA 9480 '1 235-3138
Richmond, CA 94804 x q%w-
FRANCES 11cDANIELS
FVILLIE F. DORSEY League of Women Voters
Area Council of O.E.O. 5990 Rose Arbor 235-5961
513 Grove Ave. OEO: 2228 Richmond, CA 94804 235-4930 (h)
Richmond, CA 94804 232-3063
ADA PIERCE
WILLIAM HALL Las Deltas Tenant Organization
Model Neighborhood 4Ommunity Board 1616 Jade St.
i��• /68/ N. Richmond, CA 94801 234-8424
Richmond, CA9480 234-6883
GONZALO RUCOBO
RUTH L. HANSEN United Council of Spanish-
Iron Triangle Speaking Organizations
1100 Roosevelt Ave. 1234 Nevin Ave. 229-2210
Richmond, CA 94804 235-5336 Richmond, CA 94801 232-6050 (w)
EDDIS HARRISON N. M. SNODGRASS
Richmond Elementary Council, PTA Council of Richmond Industries
5320 Rosalind 4505 Macdonald Ave.
El Cerrito, Ca 94530 233-5015 Richmond, CA 94805 233-6880
��� °�`.4`,y��� a h'M'��• �r#it�;'ne l' i,r - } ? c K: 'k + a �S.ya S +e 4xw k 1,..:. 7'. r ..N }a1r 't { r'i`.�p�95
u,;'Sf,3..,r u�Sc,pi. p 4,...,.s.:.,,:..axaiv.-.+R -&,•=f;;,.:t,*"ia :.3.?•k,•i'G` s$,3tr,3:x:1 s-z+,z„l `•r,:e,.,''a. ":,k..4:i?:tr,,;`,k.•�*,v " :�`r, ',. w.'Ia, � +Fug,' „s,gts; t"iy*i� '"'� A;i'N.J",`'6
ALLIED SERVICES COPIMXSSION Page 2 September 11, 1975
BETTY STILES CHARLES WILSON
Greater Richmond Interfaith Project Concerned Parents TAsk Force
710 Hancock Way 1709 Ganges Ave. 529-0159 (h) _
E1 Cerrito, CA 94531 526-3956 E1 Cerrito, CA 94530 524-3545 (w)
ROSE WILKERSON ISAIAH WINN
West Contra Costa County Parchester Interim Planning
Children's Council Committee
l8A7 - 7th St. 237-4475 705 Harrison Dr.
Richmond, CA 237-0386 Richmond, CA 94805 233-3898
ALTERNATES -
ETHEL K IVO OLDEN
Richmond ementary Council, PTA Las ltas Tenant Council
5405 Rosalin 1611 rth Jade St.
E1 Cerrito, CA 4530 Richmo , CA 94801
BEN FIGUEROA FRANCES UNDERS
United Council of Spanish- Concerned arents Task Force
Speaking Organizations c/o 1709 Ga ges Ave.
1234 Nevin Ave. .£1 Cerrito, 94530
Richmond, CA 94801 232=6050
SEN MINUTES TO: Allied Services Board (15) Sickenger (1)
A2 Croutch (1) Weide (1)
Judy Miller (2) y Grove (1)
(file immediately. King (1)
in project file)
ALSO TO: LUCY EL ON, S.R.S. Y NELSON
Dept. of .W. State Office on Aging
50 Fulton St. 1407 Market St. , Room 324
San Francisco, 9-Z4102 San Francisco, CA 94103
MANUEL RAMOS, .XEC. MARIE GOODMAN
U.C.S.S.0./ Mental Health Advisory Board
516 Main t. 250 Susanna St.
Marti ez, CA 94553 R tinez, CA 94553
fJ :N BOYLES JR.
man Resources Committee, Grand Jury
3028 May Road
Richmond, CA
SEND AGENDAS TO: Mary Dunten (both ASC and ASB)
Total 'Copies; 55
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�� 1.'--a ice-, i ,� f s. - ) /y t�+a„;f'�ti`�}��(.r, i., b77. '�'z�;�i�°4�'e5 �. :.a1 k i =k�.y I ror'Ti<;V.v'..g1. � k • �t�k�iE�,efmi";��4��:h'j.a �.T��� �,.'^;�ix�+,�� `1 «'.:,�.�s;'`,�...
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January 14 , 1975
(Judy Miller: On December 17, 1974 the Board agreed to sponsor a
workshop (County-City) to determine how funds are to be expended
through the entire county with respect to delivery of human services . )
Boggess : This Board was to designate someone to continue meeting
with cities on the delivery of human services problem. If no
objection,, Mr. Will and I will represent the Board. Do not believe
order is required.
Moriarty No objection. I am very concerned with allied services
program progress. Would like to see more pr res in Richmond and
Pittsburg areas. It is my thought that the -s should work
very closely with County Administrator and Human. Resources Agency
in these two fields particularly. The Human Resources Committee
should be kept closely informed. 70�14
t O�
Boggess: You could represent the Board with mwr in addition! to me,
Boggess: Then the three of us will represent the Board.
Co . Administrator: The importance of the allied services project is
such that Human Resources Committee should take lead ��, in
that particular subject.
Moriarty: I want to be very sure that we are not duplicating efforts
and are utilizing people and facilities in assistance
as much as possible,
x,!23, .•Q"R.�C„G'"t!
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DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
REGIONAL OFFICE
50 FULTON STREET
SAN FRANCISCO, CALIFORNIA 94102 OFFICE OF
DEC .1 i�j� THE REGIONAL DIRECTOR
AGENDA ITEM 4,/q,
for J"-. -
(date) RECEIVED
Mr. Warren N. Boggess, Chairman DEC 5 1975
Contra Costa County Board of
Supervisors J. R. OLSSON
651 Pine Street
CLERK fiOA?0 OF SUPERVISORS
Martinez, California 94553
Dear Mr. Boggess:
Region IX, U. S. Department of Health, Education and Welfare, has
recently been reviewing the progress of the Contra Costa County
..All.fq�d_5qrvices__?roJect toward 'development of a formalized human
services decision-maki-n-g process. In conjunction with this, on
November 119 1975, 1 met with representatives of the project from
your county, including Ruth Anderson, Co-Chairperson, Joint
Information-Sharing Council ; Henry Dishroom, Assistant City Manager
of Richmond; Mary Blackburn Wilson* Chairperson, Allied Services
Commission; and Andrew Eber, Government Relations Director, United
Way. The meeting concerned DHEW's cqJnJnued,..commftmenJt to the
county in regard to the. AllieO,Servic
,es,,@ffqrt. As a result of
the meeting I was favorably- impressed with the extensive commitment
that has been obtained from your cities, unincorporated areas, and
advisory boards in working toward continued development of this
process.
It is my understanding that currently your Board of Supervisors is
considering the continuation of this effort. I would therefore,
on behalf of DREW, like to express our Eoq!�
Inued ,,s,u pjo
.p .rt and
interest, even though our special R & D grant-Wil shortly expire.
In this regard, you should be aware that HEW has reintroduced the
Allied Services Act. We are hopeful that your Board will take
positive action to further this effort. You can be assured of
whatever support and/or assistance we can give in terms of achieving
the goals that Contra Costa County has set itself.
I am hoping to visit your county in thevinear future and meet with
members of the Board of Supervisors and Mr.- Will , the County
Administrator, to personally review the Allied Services Project
and other HEW programs in Contra Costa.
Sincerely,
p,.Joe P. Maldonado
Regional Director
MAJORITY MEMBERS: MINORITY MEMBERS:
CARL D.PERKINS,KY.,CHAIRMAN ALERT H.OUIE.MINN.
FRANK THOMPSON.JR.,NJ. JOHN M.A[HNRODK.OHIO
JOHN H.DENT,PA. AL PHO"1O BELL,CALIF.
DOMINICK Y.DANIELS,N.J.
JOHN H.ERLMDORN,ILL.
Jiro O'HA CH. CONGRESS OF TJOHN HE UNITED STATES M RYNI.ENBACKIAC„EO.
AUOUSTUE F.HAWKINS,CALIF. EDWIN b.E[HLEMAN.PA.
WILLIAMD.FORD,MACH. HOUSE OF REPRESENTATIVES StS
WILLIAM A.LDORE,NIB.
N -..
PATSY T.MK,HAWAII ORVAL HAN'�[ENIDAHOND,
tJAYD M[ED[,WASH.
' JOS[WFtrM. YOA DOCALIF. COMMITTEE ON EDUCATION AND LABOR JACK F DWIN KEEMP.N';E.H.J.
WILLIAM(SAW CLAY.MO,
PETER A.PEY[ER,H.Y.
EHIALCY CHISHOLM.N.Y. 2191 RAYBURN HOUSE OFFICE BUILDING DAVID D.TOWELL,NEV.
MARIO BIAOOI.N.Y. RONALD A.EARA[IN,CORN.
RU A T.GRA[EO,CONN. WASHINGTOND.C. 20515 ROBERT J.HUeeR,MICH.
ROMANO i..MAZZOIJ,KY, .�—
HERMAN EWS..L.O,N.Y. September, .18, 1974
IK[ANDREW[,HC.. TELEMION[[,
WILLIAM LEHMAN,FLA. MAJORITY^—ttf-4LLI
JAIME REHITQ,F.R. MINORITY—ut-Int
J. E. Moriarty, Chairman
Contra Costa County Board of Supervisors
Administration Building, Room 103
P. 0. Box 911
Martinez, California 94553
Dear Mr. Moriarty:
I appreciate very much your recent communica-
tion and the invitation extended by the Contra
Costa County Board of Supervisors to visit Contra
Costa County for the purpose of reviewing the process
of services integration now being carried out under
an Allied Services Project.
As the committee formulates a schedule for the
purpose of further considering Allied legislative
proposals, we shall most certainly keep in mind
this invitation. Meanwhile, the testimony of the
Director of the Contra Costa County Human Resources
Agency, Mr. Robert E. Jornlin, before the committee
in July will be helpful.
Sin erely,
(V��-
Carl D. kine
Chairman
CDP:rm
�. . 10 � RECEIVED
S E P.23 1974
Voli
J. R. OLSSON
CLERK BOARD OF SUPERVISORS
-CONTRA
By t*&AWW
y
FOR YOUR INFORMATION 7W.;
i �
S FP G 1974
September G, 1974
J. E MORIARTY, CHAIRKAM, BOARD OF SUPERVISORS
R. L. Jornlin, Dire or
RECEIVED
MUMMY TO HOUSE EDUCATION AND LABOR COMMITTEE
SEP 2 41974
J R. OLSSON
CLffRD OF SUPERVISORS
CO TM C0.
Reference: Board Order Dated August 20, 1974
1n response to the aboverefere:ncod Board Order, I have prepared for your
signature a lattor of invitation to the House•Education and Labor Com—
mittee to visit Contra CoLta County and observe at first nand the process
of services integration currently being carried out under the auspices of
the Allied Sarv. ces Project.
Should the invitation be accepted, I would be nappy to assist in the
developwent of an itinerary.
Rb'J:aslt
cc: Arthur G. Will, County .administrator
Mary :Junten, Public Information Ufricer
Judy Ann Allied 'services Project Director.,m
Attachments: Letter of Invitation (for signature)
Board Order (for .information only)
i .
E
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3d ..rF'.
t.�;.;,;{•'.».."ir':fy 4't„n< {q RYr.a. 1 o4v'-.• n. S.'Y,.S.:, ('. •f.i 4 lh. .h .k3,.,w. ?:��E:.' £� .,,_Ir ;t ,.� ]t.}%fl:.7„ti ystcY)�daT,ltt i< '; 4Y'C -.,,..,.� c.iue YAC :?Sd
u .,�. ���M,c}_�q,,• ,Pr�q,'�a�ya.�;: '�'`.t;`��'” .-��'a��..rr...:� �iet'.4:.<< '��.. t�-S.A m}r•��?�4.3*y,�xs ''�T�4�.t �:x "7` •xl`��3', v ���`r g�Sr..�.�i�2.k'4.r ,.,y ,.th',�.y
I
P. KENNY, RICHMOND THE BOARD OF SUPERVISORS JAMES E.MORIARTY
iAm"ESDISTRICT CHAIRMAN
ALFRED M.DIAS,SAN PABLO CONTRA COSTA COUNTY WARREN N. BOGGESS
ENDDISTRICT VICE CHAIRMAN
JAMES E. MORIARTY, LAFAYETTE JAMES R. OLSSON, COUNTY CLERK
3RD DISTRICT ADMINISTRATION BUILDING. ROOM 103 AND ex orricto CLERK OF THE BOARD
WARREN N. BOGGESS.coNcoRo P.O. Box 911 MRS. GERALDINE RUSSELL
4TH DISTRICT CHIEF CLERK
EDMUND A. LINSCHEID, PirrseuRa MARTINEZ, CALIFORNIA 94553 PHONE 226.11000
STH DISTRICT EXTENSION 2370
September 6, 1974 R E C E-IVED ,
HONORABLE CARL PERKINS, CHAIRMAN SEP 2 4 1974
House Education and Labor Committee
U. S. House of Representatives R6. OLS�.ON
10'
1!
RD OF SUCIRVIjORS
13 M4; '�Vlp
C "W
Washington, D. C. CC1
Ut
Dear Mr. Chairman:
You will recall that Mr. Robert E. Jornlin, Director of the
Contra Costa County Human Resources Agency, testified before your committee
on July 10, 1974, on behalf of the National Association of Counties
regarding the Allied Services Act of 1974. At that time the suggestion
was made that an invitation be extended to the Education and Labor Com-
mittee to visit Contra Costa County for the purpose of observing at first
hand the process of services Integration as it is currently being carried
out under the auspices of the Allied Services Project.
Mr. Jornlin having apprised Contra Costa County's Board of
Supervisors of this suggestion, the Board voted on August 20, 1974, to
extend an invitation to the House Education and Labor Committee to visit
this County, and I am most happy, as Chairman of the Board, to extend to
you this invitation. If you and the other members of the Committee can
find the time in your busy schedules to make this visit, we shall look
forward to the opportunity of welcoming you to our County and giving you
a first-hand look at the operations of our Allied Services Project.
sincerely,
J. X Moriarty, Chairman
Contra Costa County
Board of Supervisors
CC: Bernard Hillenbrand, NACo
BC; Tom PurvIse Asst. Regional Ddroctor for
Intergovernmental Affairs, DREW
<2
I
IN THE BOARD OF SUPERVISORS
OF
CONTRA COSTA COUNTY, STATE OF CALIFORNIA
In the Matter of Report of )
Director, Human Resources Agency )
in connection with Testimony )
Presented to House Education ) August 20, 1974
and Labor Committee Regarding )
Allied Services Act cit` 1974• )
Mr. R. E. Jornlin, Director, Human Resources Agency, in
an August 16, 1974 report to the Board, having noted that on
July 10, 1974 he had appeared before the Committee on Education
and Labor, U. S. House of Representatives . to give testimony in
behalf of the National Association of Counties with respect to
the Allied Services Project and more specifically the role of
services integration being conducted at the local level; and
Mr. Jornlin having commented briefly with respect to
his presentation of said testimony to the Congressional Com-
mittee and having provided the Board members with copies of
his statement; and
Mr. Jornlin having suggested that an invitation be ex-
tended to the Committee on House Education and Labor, to visit
Contra Costa County and observe first hand the process of
services integration currently being carried out under the au-
spices of the Allied Services Project; and
On motion of Supervisor E. A. Linscheid, seconded by
Supervisor A. M. Dias, IT IS BY THE BOARD ORDERED that receipt
of the of ore s ai d report is ACKNOWLEDGED and Supervisor T. E.
Moriarty, Chairman of the Board, is AUTHORIZED to execute a
letter extending an invitation to the House Education and Labor
Committee.
The foregoing order was passed by the following vote:
ASS: Supervisors J. P. Kenny, A. M. Dias,
W. N. Boggess, E. A. Linscheid,
J. E. Moriarty.
NOES: None.
ABSENT: None.
I HEREBY CERTIFY that the foregoing is a true and correct
copy of an order entered on the minutes of the Board of Super-
visors on the date aforesaid.
Witness my hand and the Seal
of the Board of Supervisors affixed
this 20th day of August, 1974.
cc: Director, Human Resources J. R. OLSSON, CLERK
Agency
Director, Allied Services
Project
Acting County By o
Administrator Charleen K. Travers
Deputy Clerk
• r
Human Resources Ogency
CONTRA COSTA COUNTY
Date August 16, 1974
To BOARD OF SUPERVISORS
From R. E. Jornl.in, Director
Subj TESTIMONY BEFORE THE HOUSE EDUCATION AND LABOR COMMITTEE RE ALLIED
SERVICES ACT
As the Board is aware, on July 10, 1974, Mr. Edward Regan, County Executive of Erie County,
New York, and I appeared before the House Education and Labor Committee to give testimony
on behalf of the National Association of Counties in regard to the Allied Services Act.
Attached you will find a copy of that testimony.
Briefly, Mr. Regan emphasized the possibility of the Allied Services Act becoming a
great step forward in improving and rationalizing the delivery of human services. He
emphasized strongly the need for strengthening the authority of county government by
allowing' counties to develop and implement their own services integration plans without
walting for authority to flow from the state government.
My testimony was based on the experiences of the Allied Services Project currently being
conducted in Contra Costa County, as well as the experience shared with five other counties
that participated with Contra Costa in NACo's services integration research project of 1973.
X emphasized the significant role of counties in delivering human services and the need to
respond to efforts in services integration initiated at the local level. I concluded my
testimony with a quotation from the political theorist, Niccolo Machiavelli: "It must be
remembered that there is nothing more difficult to plan, more doubtful of success, nor more
dangerous to manage, than the creation of a new system, where the initiator has the enmity
Of all who would profit by the preservation of the old institutions and merely lukewarm
defenders in those who would gain by the new ones."
As a result of this testimony, it was suggested by the staff person to the Chairman of the
committee, Congressman Carl Perkins, that an invitation to visit Contra Costa County should
be extended to the House Education and Labor Committee. I would recommend that the Board
direct the Chairman to send a letter to the committee inviting it to visit Contra Costa
County and observe at first hand the process of services integration currently being
carried out under the auspices of the Allied Services Project.
REJ:ask
Attachment: Testimony 4-1 I V ��
cc: County Administrator
Geraldine Russell, Chief Clerk of the Board �......
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1735 new york avenue, n.w., washington, d.c. 20006 (202) 785-9577
STATEMENT OF
EDWARD RE-GAN
COUNTY. EXECUTIVE
ERIE COUNTY, NEW YORK
ON BE IMF OF
THE NATIONWL ASSOCIATION OF COUNTIES
BEFORE THE
COrZiITT}3r ON EDUCATION AND LABOR
U.S. HOUSE OF REPRESENTATIVES
ON
H.R. 12285
July 10 , 1979
Washington, D.C.
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STATEMENT OF EDWARD REGAN, COUNTY EXECUTIVE, BRIE COUNTY, NEW YORK
ON BEHALF OF THE NATIONAL ASSOCIATION OF COMITIES BEFORE THE HOUSE'
EDUCATION AND LABOR CO1,U4iTTEE ON NATIONAL SERVICES INTEGRATION
LEGISLATION, JULY 10, 1974.
I am Edward Regan, County Executive of Eric County,. New York.
Accompanying me today are Robert Jornlin, the Director of the
Human Resources Agency of Contra Costa County, California, and
Ralph Tabor, Director of Federal Affairs for the National Association
of Counties. We appear today because of the tremendous interest and
• involvement of county government in the effective delivery of human
services, and therefore, an interest in the Allied Services Act of
1974.
We commend the committee for its dedication to legislation
which will improve the lives of citizens in need and its interest
in this particular legislation to make that task easier and more
assured of success.
The National Association of Counties is the only national
voice for the counties of America, representing seventy percent of
the total. United States population, the population which you I have
been elected to represent.
There are 3106 counties in the United States, all with elected
leadership, providing a wide range of human services.
Counties are usually associated with the building of roads and
bridges and the inspection of public facilities . In truth, counties'
are major providers 'of -human services. One significant set of
..services with which so many counties are now deeply involved is the
comprehensive block of manpower services under the new Comprehensive
-2-
Employment and Training Act of 1974, with which this committee is
so familiar.
Also, counties provide criminal justice services . Almost all
counties provide health services in their various forms. And, in
almost half the states the counties continue to carry primary re-
sponsibility for the delivery of social services. Adtlitionally the
delivery of some emergency services is also left in the hands of
many more counties.
Not only are counties, municipalities and cities the levels
of government closest to the population but they are usually small.
enough to be truly responsive yet large enough to. provide effective
Services thus making the local units of general purpose government.
the ideal body for coordinating human services.
In my own experience local. coordination of human services is,
at this time, more. a conceptual dream than an operati8nal reality.
For the past year Erie County has -been studying methods wherein our
fragmented health anu social services can be re-deployed to form an
effective comprehensive human service delivery system. The system
under development would be oriented to respond to the totality of
needs presented by families and individuals in contrast to the current
pattern of reacting to health and social problems after they occur. '
We propose to emphasize four major factors in the design of the
system: (l) a preventive approach to client problems by stressing
early identification of conditions which lead to health and social
dysfunction; (2) the decentralized delivery of services in accessible
community-based human service centers; (3) the joint provision of
services by our Departments. of Health, Social Services, Mental Health,
Aging, and Hospital; and (4) the participation of the community in
the planning and monitoring of services to be rendered.
Our good intentions in this plan are, however, marred by
the realities of existing programs and policies which, through their
construction, pose barriers to the ready implementation of our plan.
Present categorical. programs directed at specific pathologies, popu-
lations, or age groups , with varying eligibilities restrict the
development of new and innovative service mechanisms . These restrictions
are the primary hurdles to service integration at all levels of
government. The Allied Services Act is viewed as a great step forward
in improving and rationalizing our delivery of human services. For
these reasons I voice support of the bill with our recommended
r revisions and inclusions.
In summ;.ry, we fundamentally support the bill, yet would suggest
a number of changes. As you will hear from the next person to testify,
the significant value and import of this legislation has been
demonstrated through the Allied Sei.•vices Research Project conducted
by NACo -- and I call your attention to the published report, Human
Services Integration at the Community Level: A Six County Report
(submitted now to this committee) .
However, to optimize the potential of such a law at the community
level, we must emphasize the need to strengthen the authority of
the level of government actually providing services. We, therefore,
feel it is imperative to remove the limitation in the bill that
permits initiation of services integration only at the state level.
We propose an amendment to the act -- to allow counties to
respond to the population with which they are in such close proximity
when a need for services integration is made known.
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If the time is not right for the governor' or. the state to
move, the local community for which the time' is right should not
be restrained from moving forward.
For years our county and many other counties have fallen
short of the goals we have set for ourselves in servicing the day
to day human service needs of our populations. Social services
have not overwhelmingly contributed to the development of self-
sufficiency and self-support by those individuals who need the
greatest help in pulling themselves up. Health and mental health
services may be available in severe crises, but they are not available
enough to prevent those crises from occuring -- or recurring.
As strongly as we have committed ourselves to improving the
way of life of all our citizens in need the very young, the aged,
and those unable to care for themselves we have not been successful.
Daily, persons in need of food, of clothing, of shelter, of counselling,
and of- family protection come to us for these services and some-
times we can deliver, sometimes, no,--.
Though we provide the services we can, we are most limited
in our ability to respond to need by the administrative measures of
federal programs and by the huge gulfs between the rigidly narrow
and restricted categories of funds and services.
The federal government has provided, through its multitude of
cate&orically funded programs, resources to meet basic human needs.
But it has placed these resources just beyond the reach of those in
need. And it has made us , the elected representatives serving in
the governmental unit closest to these people pari of the -barrier
separating them from what they need.
Both the members of the population at risk .and representatives
of the federal bureaucracy look to us at the community level to find
the solution to the problem which recreates itself each time a
citizen needs a human service.
We are severely limited in finding that solution and will
remain so -- unless the red tape binding federal .categoriclal funds
is UITAound.
The first step in, that process is the Allied -Services Act of
1974.
The bill is not the answer to the total range of problems
which continue to prevent the swift, responsive flow of services to
individuals in need,• but it is a legitimate beginning and the
z; only one in sight.
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1735 new york avenue, n,w., washington, d.c. 20006 (202) 785-9577
STATEMIENT OF
ROBERT a0RNLIN
DIRECTOR, HUxSA13 RESOURCES AGLNCY
CONTRA COSTA COUNTY, CALIFORNIA '
ON BEHALF OE
T1173, NATZt)NAII ASSOCIATION OF COL114TIES
BEFORE' THE
COMITTEE ON EDUCATION AND LABOR
U.S. HOUSE OIC' REPRESENTA7'ZVES
ON
H.R. 12285
July 10, 19", 4
Washington, D.C.
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STATEME.NT OF ROBBMT JORNLIN, DIRECTOR, DUMAN RESOURCES AGENCY,
CONTRA COSTA COUNTY, CALIFORNIA, ON BEHALF- OF THE. NATIONAL ASSOCIATION
OF COUNTIES BEFORE THE HOUSE EDUCATION AND LABOR COM14ITTEE ON
NATIONAL SERVICES INTEGRATION LEGISLATION, JULY 10, 1974 .
I am Robert Jornlin, Director of the Human Resources Agency,
of Contra Costa County, California and I have come before you as
a representative of Contra Costa' County and the National Association
of Counties to testify on the Allied Services Act of 1974 .
Contra Costa County has pioneered services integration it
the local level. The county Human Resources Agency was formed in
1971, consolidating four major programs health, mental- health,
medical care, and social services.
Several methods of developing, coordinating and int6grati,ng
services have been employed by the county including service
contracts, jointly funded planning*, the establishment of community
groups to increase citizen participation, the development of a
multi-service community center, and planning for the increased use
of electronic data processing.
• Over the past 2-1/2 years, our county has been supported in
its services integration undertakings by the Department of Health, ,
Education, and Welfare' s services integration grant which provided
the staff and resources essential for program planning oind imple-
mentation. Without these federal resources, extensive planning .And
aggressive movement toward a successfully integrated
egrated system would
have been extremely difficult.
Contra Costa's third involvement services integration and
the concepts of the Allied Services Act took placeas we participated
_7_
in the six-county Allied Services Research Project conducted by
, the National. Association of Counties in 1973 .
The NACo research effort gave, us a 'chance to stand back and
evaluate our progress in the field of services integration. It
provided independent feedback and the added perspective of five
other counties approaching similar, objectives.
Thus, through the establishment of the Human Resources Agency,
through the planning and development supported by HEW funding, and
through participation in the NACo study, we have learned that Contra
Costa County is ready for services integration; and now we need an
authority such as the Allied Services Act of 1974 .to totally carry
out our plan.
Like the other 5 counties in the NACo study, Contra Costa would
benefit by the lmplemuntaLiuii of the legislation. 'relo., however. dant
some changes in the act. We would like to see the act expanded to
include more aspects of each federal program area involved, and to
include the authority for additional funds to establish human
resources staffs and planning capabilities to achieve intergovern-
mental. cooperation. And, we especially want to see more authority
going to the local unit of general purpose government that
governmental level which should be designated to carry out the
objectives of the bill.
Dur experiences in Contna Costa County with the implementation
of an allied services approach have led us* to the conclusion that
the act, for optimal effectiveness, must mandate citizen participation
. . in the development, approval, operation and evaluation of the local
and state allied services plans. In our own project we have developed
an organizational plan for this 9
undertakin now submit nosubmit this plan
-3-
and Contra Costa' s own reports on its services integation efforts
for the committee' s consideration -- that is, our Feasibility
Study Design and Proposal for Third Year Funding.
Both Contra Costa County and NACo are pleased and want to note
our pleasure with three changes made in the first Allied Services
Act, introduced in 1972 : first, using the bill as a source of re-
. search and demonstration undertakings rather than straight implemen-
tation in services integration; second, lengthening the period of
time during which funds can be provided; and third, increasing the
percentage of funding which might be transferred. We feel that
acknowledgement of services integration efforts as experiments and
recognition of funds and time necessary to effect' change are
realistic, reasonable changes.
Other recommendations, determined through the NACo study and
noted in that report (which was referenced. as part of I Mr. Regan I s
testimony) are:
State Pass Through. A provision should be added to the bill
permitting HEW to approve and support local allied services plans
when the state does not choose to participate or moves. too, slowly
in developing the state plan.
Four of the six counties in the NACo study detected little
interest in services integration on the part of their states, and
are not confident their states would participate in the allied
services legislation.
Therefore, counties recommend that -the initiative to develop
services integration plans should pass to local elected officials
if governors do not act within a reasonable length of time.
Greater State Responsibility. The intent of the proposed not
to provide a larger role- for states in coon dinatinghuman servioos
4
pre
imbalance in our federal system.
is necessary to redress the pr
Increased responsibility should be an integral part of this new
authority.
Under the current provision, however, a state could limit its
participation to minor administrative tasks in the certification
of local plans and leave untouched t)-ic broad questions of federal,
state and local roles in better services delivery. .
• The allied services bill must be more ambitious in requiring
the changes necessary to foster a .comprehensive planning and ser-
vices delivery strategy at the state level. '
Clarif the Role of Substate Regions. For substate regionalism
to be optimal, all state human services agencies should be mandated
to plan and deliver services and collect data in clearly defined
coterminus regions.
A related issue, also unresolved in the legislation, is how
the allied services plan meshes with other regional "comprehensive" .
plans. is the allied services process to take precedence over the
comprehensive health planning process established by section 314 (b)
of the Public Health Services Act, as amended? How is the allied
services plan to be coordinated with regional plans funded by the
Law Enforcement Assistance Act, or with manpower plans developed
by Manpower Area Planning Councils or Ancillary Manpower Planning
Boards? ,
Also, in implementing this legislation, there are needs to be
met by HEW: .
° the provision of model plans to guide communities in designing
their own plans;
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° soma guarantee that participants in approved plans have pre-
ference in receiving federal funds for new services;
° the provision of technical assistance;
° the establishment of a mechanism to review and evaluate
preliminary plans;
° special demonstration funds to sites interested in designing
human service information systems; and
° a forum for the regular exchange of views on services in-
tegration such as an advisory council of state and local elected
officials. .
The Allied Services Act, even after incorporating the above
amendments, will still be but the first of many, many steps in i.e--
fining a federally supported human 'services delivery structure
which has grown erratically.
The process of improving the effective delivery of human ser-
vices in the U.S. will be slow -and painful. To quote an infamous
political theorist, Niccolo Machivaelli:
"it must be remembered that there is nothing more -difficult
to plan, more doubtful of success, nor more dangerous to manage,
than the creation of a new system. Where the initiator has the en-
mity of all who would profit by the preservation of the old institu-
tions and merely lukewarm defenders in those who would gain by the
new ones. "
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In the Board of Supervisors
of
Contra Costa County, State of California
May 17 , 1977
In the Matter of
Final Report of the Allied
Services Commission.
The Board on January 18, 1977 having referred. to its
Internal Operations Committee '(Supervisors E. H. Hasseltine and
N. C. Fanden) the Final Report of the Allied Services Commissiori
for consideration in conjunction withproposal for a compre
herisive human services planning and decision-making process ; and
The Committee having this day submitted its report
recommending that the Final Report of the Allied Services
Commission be accepted with appreciation to the citizens and
staff who participated in this eff—dr"t, and having further
recommended that the County continue to develop and test methods
for improving and consolidating the delivery of human services;
IT IS BY THE BOARD ORDERED that the recommendationsd6f
the Internal Operations Committee 'are'%APPROVED.
RASSED by the Board on May 17, 1977. '
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
Witness my hand and the Seal of the Board of
cc: Board Committee Supervisors
Director, Human Resourcesaffixed this0ay of 19�
Agency
County Administrator
J. R. OLSSON, Clerk
By Deputy Clerk
M Crai
H-24 4/77 15m `-%` ji Lr htr,� 1�.��✓�}'�rif�J �`Y ^-
The Board of Supervises Contra , James County Clerk
County Clerk and
County
Costa Ex Officio Clerk of the Board
Administration Building Mrs.Geraldine Russell
P.O.BOX 911 ,/ Chief Clerk
Martinez,California 94553 /�"/ County (415)372-2371
f�N
James P.Kenny-Richmond
1st District LRECEIVED
Nancy C.Fanden-Martinez2nd District
Robert 1.Schroder-LafayetteY /�' 977
3rd District 1Warren N.Boggess-Concord4th District . R. OLSSONEric H.Hasseltine-Pittsburg MAY 17 , 1977 ARD OF SUPERVISORS
5th DistrictTSCO. De u
REPORT
OF
INTERNAL OPERATIONS COMMITTEE
ON
MATTER OF THE FINAL REPORT OF THE ALLIED SERVICES COMMISSION
The Board on January 18, 1977, referred the Final Report of the
Allied Services Commission to this committee to be considered in
conjunction with the proposal for a comprehensive human services
planning and decision-making process.
With the introduction of the Allied Services Act of 1972 came
the allocation of substantial funds for Services Integration,
Target of Opportunity (SITO) projects. These projects were
designed to pre-test parts of the proposed Act. Twelve areas
across the country, one of which was Contra Costa County, were
initially selected by the Department of Health, Education and
Welfare for such projects.
Contra Costa was selected, at least in part, because of the efforts
of the County in the Model Cities Program.
There are two primary concerns for human service delivery which
prompted the Act. One concern is for the quality and effectiveness
of the services and the other is for the cost of the services. In
short, the constant objective is better service for less money.
The funding process can be reduced in complexity and cost by
moving to direct funding of a total human service program within
the County. This would require a local allocation process which
would necessarily be based on a comprehensive human services planning
process. At the same time, significant service improvement will
seemingly occur only if services are integrated, coordinated and
tailored more closely to community needs. To provide such
management of service will also necessitate a comprehensive
planning process. Thus, the double objective demands a process
by which a comprehensive plan for integrated service delivery can
be formulated.
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While the Allied Services Act was concerned with the funding
process, the part of the Act which was to be tested in Contra
Costa was the development of a process to provide integration of
planning and services. Specifically, it was an objective of
the Allied Services Project to identify the barriers to such
integration.
The thesis of the Act and the associated SITO Projects was that
human services could be improved and that funding could be
directed most appropriately to the satisfaction of needs through
integrated service delivery. The prelude to the identification,
coordination and integration of services must be the identification
of community needs and the establishment of priorities. Those
most qualified to judge the needs and priorities within the
community are those with direct personal experience.
To perform the tasks associated with the Project, the Contra
Costa County Allied Services Commission was formed in April of
1973. The Commission was structured to allow participation of
the recipients of County services in this study. The Allied
Services Commission was the citizens component of the Allied
Services Project. There also existed an Allied Services Board
consisting of nine Department Heads involved in the Project and
a Project Planning Group consisting of approximately twenty staff
members of these departments.
The enormity of dealing with local citizen input throughout the
County, and the fact that the City of Richmond and Contra Costa
County had already established a realtionship in the area of
service integration through the Model Cities Program, led to the
restriction of the program to one area, Richmond. In fact,
Richmond became a co-sponsor of the Project.
The Commission established several task forces to concentrate
necessary effort on areas of interest and concern. The fact that
efficient delivery of service is highly dependent upon the smooth
interaction of planning and implementation functions became
evident.
The Allied Services Project addressed only the planning for such
services. once a plan is developed, however, there are no results
without effective implementation. The Commission eventually
concluded that the success of a plan is not nearly as dependent
upon the content and quality of the plan as it is upon the
ability and willingness of staff to implement the plan. The
Commission developed a deep sense of frustration from its inability
to influence the County and City departments charged with actual
delivery of services, and with the resistance it encountered
from staff concerning changes in operational policy, especially
where loss of control or responsibility was involved. Juris-
dictional disputes arose which disrupted the integration and
' • -3-
coordination process. Although staff personnel were directly involved
in the planning process through the Project Planning Group, there
appears to have been less than full commitment of the departments
to this process. As a result, the process tended to produce plans
which were unacceptable or needlessly difficult to implement.
The clear message from this experience is that planning must be
conducted from the start with eventual implementation in mind.
Furthermore, if integrated policy making and planning is to be
conducted separately of the service staff organization, com-
munication must flow smoothly from one to the other. The only
effective flow path appears to be via a body with authority over
both functions. In the case of the County, this is the Board
of Supervisors. In order for the process to work, a very clear
commitment of the Board is vital. Citizens and staff must know
what is expected of them and the Board must be ready to resolve
differences as soon as they arise. Measurable objectives should
be identified and flexible boundaries of responsibility must be
established within County agencies or departments.
The intended results, demonstrating that heavy citizen participation
and cooperation amongst services could lead to an improvement of
the entire human services delivery process, were not realized.
No specific or detailed model for planning clearly emerged. No
plan for integration of services was identified. The failure to
satisfy the elementary purpose of the effort did not allow any
evaluation of the higher order questions, namely integrated
delivery of service or financial advantages of direct or block
grant funding.
The lack of results stemmed in part from the failure to initially
identify any specific objectives for the project, and , more
importantly, any criteria for evaluation. The effort was further
hampered by a simultaneous initiation of the Human Resources
Agency in the County, which provided a somewhat disruptive
influence on the project due to the readjustment of organizational
responsibilities.
Rather than learning how to integrate services effectively, we
have gained from this project a better understanding of the nature
of the process. Barriers to integrate service delivery exist and
must be overcome. Most of these seem to relate to basic human
nature. Citizen participation is highly desirable in developing
policy but that effort cannot be independent of the implementing
departments or agencies. The Allied Services Project has served
a valuable experience in the current and ongoing efforts of this
County to involve citizens in decision and policy making, and to
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move toward block grant funding as opposed to categorical grants.
It should be acknowledged that the limited scope of the project
could not be expected to attain effective County-wide delivery
of services. To further the applicability of this experience to
the entire County, a proposal was submitted to HEW to use
Allied Services funds to conduct a feasibility study for a County-
wide human services planning process. This continuation of the
Allied Services Project did produce a preliminary model for the
desired comprehensive planning process. Upon this model, the
concept of a Human Services Advisory Commission for Contra Costa
has now been established.
It is the recommendation of this committee that the Final Report
of the Allied Services Commission be accepted with appreciation
to the citizens and staff who participated in this effort. it
is further our recommendation that the County continue to develop
and test methods for improving and consolidating the delivery of
human services.
It is our hope that the significant investment of Federal money in
Contra Costa County represented by the Allied Services Project will
eventually lead to a benefit for our citizens in the form of im-
proved human services.
Eric H. Hasseltine Nancy Fanden
Supervisor, District V Supervisor, District 11
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' June, 1975
' TO: CONTRA COSTA COUNTY
ALLIED SERVICES COMMISSION
' SUBJECT: Legislative Task Force Committee's Report of Activities
' The Legislative Task Force respectfully submits it's report of activities
to the Contra Costa County Allied Services Commission for review and
subsequent adoption.
The members of the Task Force wish to acknowledge those individuals
who contributed to this effort. Special notice is taken of the outstanding
staff support provided by Tom Morioka, a vital element in the work of
the committee.
Dr. Mary L. Wilson ;lackb
Chairperson
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LEGISLATIVE TASK FORCE MEMBERS
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NAME GROUP REPRESENTED
Robert Clark Domestic Action Coalition
Kagey Dorosz Central Labor Council
Vice-Chair
Maxine Eason CETA
Manuel Estrada United Council of Spanish Speaking Organ.
Eddis Harrison Richmond Elementary Council PTA
Francis McDaniels League of Women Voters
'
Mary Wilson Blackburn, Ph.D. Food Advocates
Chairperson
.. Warrington Stokes Project Planning Group
Tom Morioka Social Services
Staff
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' LIST OF CONTRIBUTORS
NAME AGENCY*
1. Mrs. Irma Anderson Health Department
2. Mr. George Blumenson' Richmond Unified Schools
' 3. Mr. Earle Carr Richmond Unified Schools
4. Mr. Al Croutch Human Resources Agency
6. Mr. John A. Davis Probation Department
6. Dr. George Degnan Medical Service-Mental Health
7. Mr. Gerald Dewhirst Social Security Administration
8. Mr. Robert E. Jornlin Human Resources Agency
' 9. Dr. Glen Kent Health Department
10. Lieut. Iierbert Langlois Richmond Police Department
11. Sergeant Walter Moore Richmond Police Department
12. Dr. Charles Pollack, Medical Services-Mental Health
13. Mr. Claude VanMarter Social Services
14. Dr. Orlyn Wood Health Department
*At the time interview was held.
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LEGISLATIVE TASK FORCE
REPORT�OF ACTIVITIES
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Sub f
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Contra'Costa County
Allied SerViCesCommission �4
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MTADLE OF CONTENTS
ACKNOWLEDGEMENTS
HISTORY AND PROCESS
Page
I. ADMINISTRATIVE JURISDICTION . . . . . . . . . . . . . . . . . . . . . . . . . . 5
A. Richmond Police Department . . . . . . . . . . . . . . . . . . . . . . . . . . 5
B. Richmond Unified School District . . . . . . . . . . . . . . . . . . . . . . 5
' C . County Probation Department . . . . . . . . . . . . . . . . . . . . . . . . . .5
D. Medical 4 Mental Health Services , • , . • , • . • • , • • • . , • 6
E. Public Health Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
jF. Social Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
G. Social Security Administration . . . . . . . . . . . . . . . . . . . . . . . . 6
II. LEVEL OF FUNDING FOR FISCAL YEAR 74-75 . . . . . . . . . . . . . . 7
A. Sources. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
B. Restrictions on use of Funds . . . . . . . . . . . . . . . . . . . . . . . . 7
C. Adequacy of Funds . . . . 8
III. LEVELS OF REGULATORY OBSTACLES . . . . . . . . . . . . . . . . . . . . 8
A. Federal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
B . State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
C. County. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
D. Multi . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
IV. PROGRAM OBJECTIVES . . . . . . . . . . . . . .. . . . . . . .. . . . . . . 10
A. Service Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
B. Adequacy of Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
1. Medical Services and Mental Health . . . . . . . . . . . . . . . . 12
2. Health Department . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
C. Duplication of Efforts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
V. LEVEL OF STAFFING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14
A. Flexibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14
B. Professional Staff Standards & Priorities . . . . . . . . . . . . . . .15
C . Utilization of Staff. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15
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TABLE OF CONTENTS (continued)
XTI. CITIZEN PARTICIPATION (Policy Mak ing) . . . 16
A. Health Departmenti . . . . . . . . . . . . . . . . .16
13. Social Services Department . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
C. Social Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17
D. Schools . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1.7
E. Police .`. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18
F. Probation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Community Participation Chart . . . . . . . . . . . . . . . . . . . . . . . . 18
VII. CONSUMER PROTECTION , , , „ , , , , , , , , , , , , , , , , , , , , , , , , , , ,19
A. Health Department . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
13. Social Services Department . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
C. Richmond Unified School District . . . . . . . . . . . . . . . . . . . . . . .20
D. Contra Costa County Medical Services . . . . . . . . . . . . . . . . . .20
E. Richmond Probation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21
F. Police Department . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
G. Social Security AdministrL—don . . . . . . . . . . . . . . . . . . . . . . . . .22
VIII. CENTRAL INFORMATION SYS'T'EM . . . . . . . . . . . .. . . . . . . . . . . . . 23
A. health Department . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
B. .Probation F ' , • . . . . , • • . • • • ' • ' • . • • • ' . . . • ` • .23
C. Medical-Mental Health. . . . . . . . . . . . :. . . . . . . . . . . . . . . . . . . . 23
IX. PROPOSED LEGISLATIVE CHANGES .. . . . . . . . . . . . . . .. . . . . . .23
A. Social Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
B. Medical-Mental Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2r4
C, Schools . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25
D. Probation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25
E. Police . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25
F. Social Security . . . . . . . . . . .. . . . . . . . . . . . . . .. . . . . . . . . . .26
X. COMMENTS AND CONCLUSIONS . . . . . , . . . . . . . . . . . . . . . . .26
XI. RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29
XII. APPENDICES
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ACKNOWLEDGEMENTS
It has been a ver rewarding ng experience for the members of the Legislative -
Task Force Committee to be able to work with so many individuals in Contra
' Costa County who are personally involved in human services delivery. We
suspect that we have had a wider exposure to, and therefore a better ap-
preciation for the personal philosophies of administrators and staff in the
various agencies than any other single group in the county. We also found
in our exposure that the participation of Staff in the formulation of the Allied
Services philosophies and concepts was considered by many to be something
' of a rare vintage. A few felt it to be an added responsibility.
The citizens who participated on the Commission and Task Forces have pro-
vided a special kind of interaction and dialogue and have demonstrated a
level of competence and commitment unsurpassed by any group, voluntary,
paid or otherwise. The Chair wishes to express appreciation for the oppor-
tunity to serve such an outstanding group of concerned citizens.
THE CHAIR
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HISTORY AND PROCESS
This brief history summarizes some of the work of the Legislative
Task Force Committee over its two year period of operation (July 73-June 75)
The original Task Force charge coming from the Allied Services Commission
was to: "study legislation and regulations which affected the implementation
of an Integrated and coordinated human services system; and to address
particularly the issues of consumer protection, and adequacy of financial
assistance and services to welfare recipients." This report deals*mainly with
the findings of this study.
The initial members of the Task Force were volunteers who were strongly
opposed to the original desire of the project staff not to address these crucial
issues because of the feeling that two years was not enough time to derive any
meaningful results. (Several other members eventually joined the Committee
to help with the expanding work load.) Additionally this group felt that the
process of community participation needed support and definition, not only
-from outsiders examining the citizens coramission process (as is most often the
case) but from within the Commission as well. For this reason, much time was
spent by the initial members of this Task Force In the development of the Com-
mission By Laws. These governing policies and procedures were to give
structure, purpose, and clarity to this nebulous area of consumer (citizen)
participation. (Appendix 1) It was felt that the monitoring of citizen input was
of such importance that it needed to be addressed separately from the other
content-oriented Task Forces.
The Commission felt that a long-term, ongoing group should be established
to follow-up on these issues, even after the Allied Services Project was com-
pleted. Thus, the Task Force attempted to set up its methods of approach
based on these original directives. The major activities of the Legislative Task
Force were guided by issues coming out of the four task forces working on
specific social problems, from issues generated by the work of the feasibility
teams, and from other issues brought to its attention by other groups in the
community. Some of these activities were as follows:
1. Evaluated and reported on the 1972 Draft of the Allied Services Act.
Recommendations were made on how it could be modified, to accomplish
better the goals of integration and coordination of human service pro-
grams. Special consideration was given to how the act should be
rewritten to assure meaningful community (citizens) participation
and methods of dealing with legislative and non-legislative barriers
to its Implementation. The recommendations of the Legislative Task
Force were presented in testimony before the House Education and
Labor Committee. (Appendix 2) .
2. Contacted local, state, and national legislative representatives
of the area to: a) inform them of the Allied Services Project: b)
describe the function and plans of the Legislative Task Force:
c) alert them to the possibility of future communications regarding
specific issues, and; d) request assignment of a member of each of
their staffs to participate with the Task Force. 1
3. Responded to an inquiry from the Department of Health, Education
and Welfare regarding constraints and obstacles limiting the de-
velopment of effective integrated service systems. (Appendi>. 3)
4. Discussed with a representative from Assemblyman John Knox's
office his proposed legislation for regional government.
5. Evaluated and reported to the Commission on a local initiative
petition for an ombudsman for Contra Costa County.
6. Evaluated the proposed plans for a countywide human resources
information system developed by the Human Resources Agency with
respect to the implication on consumer protection, and participated
fora short period with the Human Resources Agency's Confidentiality
Committee set up in relation to the information system. The Com-
mittee's position onthe human resource system was submitted to
the Contra Costa County Board of Supervisors and the Director of
the HRA. (Appendix 4 6 5)
-2-
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' 7. Participated on the Joint Monitoring Team on Information Sharing,
implementation plan number 7. This major activity stemmed from the
concerns with the Human Resources Information System and a request
by the Commission that the Legislative Task Force join with the Sub-
stance Abuse Task Force to monitor the Information Exchange Feasibility
' Plan V. The major purpose of this effort was to develop a systematic
mechanism for exchanging information which would safeguard the
client's privacy, and assure confidentiality of his/her records as pro-
tected by the law. In addition, the team desired to examine those areas
of client privacy that are not already protected under law. This led to
an extensive study of confidentiality policies and practices of the eight
participating Allied Services agencies. Efforts in this area with members
of the Substance Abuse Task Force are continuing, and a separate
report will be issued by the Joint Monitoring Team when the task is
completed. The Commission received a preliminary report of the work
of this Joint Team in a status report in January, 1975. (Appendix 6)
B. Assessed constraints limiting service adequacy and integration among
the eight participating agencies. The agencies involved were:
- The Contra Costa County Health Department
- Contra Costa County Mental Health Services
- Richmond Unified School District
- Contra Costa County Social Service Department
- Contra Costa County Medical-Mental Health Services
- Social Security Administration
- Contra Costa County Probation Department
- Richmond Model Cities (city of Richmond)
This major ongoing thrust of the Legislative Task Force was to attempt to
identify, assess, and make recommendations on the adequacy of service, con-
sumer protection, and laws and regulations (or the need for them) that con-
strain or block effective service delivery consistent with the goals of the
Allied Services process. The method utilized to obtain information was for
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' the Legislative Task Force to request directors of the i
g q e e ght agencies parti-
cipating in the Allied Services Project to prepare brief summaries of current
laws and regulations (federal., state, and local) affecting their operations
and identify legislation and regulations that either impeded or were needed
to facilitate efforts to integrate and coordinate services. In addition, a
questionnaire was developed and formal interviews were carried out with
the agency head of each of these participating organizations. (Appendix 7)
The interviews included detailed discussion of their summary statements,
including the identification of which current obstacles were of a legal nature;
which were results of agency intepretations of the law; and a discussion of
' interrelationships of legislation and regulatory blocks at federal, state, and
local levels.
All but one agency (Richmond Model Cities) contributed information to
this report. Following the interview, members of the Legislative Task Force
compiled a report utilizing the written materials which were submitted to them.
Legislation and regulations were requested when available. Individual follow-
up contacts were made to the interviewees by assigned Task Force members,
' Drafts of the interview reports were then sent to those persons interviewed for
their review and comments before they were finalized. Legislative Task Force
' members were then assigned the analysis of subject areas as it related to each
agoney. The results of these Task Force efforts are presented in this report.
1 .
A-
1. ADMINISTRATIVE JURISDICTION
One of the major areas where clarification was crucial involved the
precise determination of the various administrative jurisdictions governing
the function of these agencies. All of the agencies included in the review
are established by one or more levels of government, are controlled by
' municipal, county, state, and federal laws, and are totally funded from
public funds. The combinations and complexity of governing regulations
1 and laws varies from agency to agency. The arrangements for funding also
vary and are largely affected by what is available and obtainable in certain
tprogram areas.
A. Richmond Police Department
' The Richmond Police Department is a function of the City of Richmond
and is authorized by the Richmond City Council. Except for occasional demon-
stration grants, it receives all of its funds from the general taxes levied by the
city. However, the laws enforced by the department are enacted by the City
Council, the State of California, and the United States.
B. Richmond Unified School District
' The school district is governed, in accordance with state laws, by the
elected school board. The board has authorization to set certain policies and
to authorize the levying of taxes within the district. The educational program,
including such things as staff qualifications, textbooks, and curriculum, is
governed by the State Educational Code. In return for compliance with the
State Code, the State provides substantial financial reimbursement for the
costs of the educational program.
'
C. County Probation Department
The Probation Department is operated by the County under the direction
of the Superior Court in accordance with the'State Welfare and Institutions Code
and the State Criminal Code. The federal law Enforcement Act provides some
funds on a limited program grant basis. The California Youth Authority sets
standards for staffing and programs for juveniles and inspects local institu-
tions for the detention of juveniles.
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' D. Medical 6 Mental Health Services
Medical inpatient and outpatient services are authorized and adminis-
tered by the County in accordance with state law. Mental Health Services
are administered for the County in accordance with the state law which
provides financial reimbursement for a substantial part of the cost. The
' eligibility of individuals receiving the services for payment of their medi-
cal and mental health costs is governed by the state and federal law relating
1 to the public assistance programs.
E. Public Health Services
Public Health Services are administered by the County in accordance
with the California State Health and Safety Code. Certain specific programs
such as Family Planning and Screening for lead poisoning are provided through
specific federal and state legislation.
F. Social Services
Social Services, including income maintenance, are administered by the
County in accordance with federal and state laws and regulations. The local
agency is supervised by the State Department of Health (Social Services) and
the State Department of Benefit Payments (income maintenance) .
G. Social Security Administration
The Social Security Administration is a federally controlled agency provid-
ing services to counties and is governed solely by federal laws and regulations.
It is a division of the Department of Health, Education, and Welfare.
x
4 )
II. LEVEL OF FUNDING FOR FISCAL YEAR 74-75
A. Sources
In order that the Task Force might assess the potential financial capacity
for service delivery, the level of funding for each agency was obtained for
the current fiscal year (74-75) . The funding source, adequacy, and extent
to which the use of these funds Is restricted were also obtained. The govern-
mental source and the dollar amount of funds are presented in Table 1.
B. Restrictions on use of funds
Restrictions on the use of available funds were most obvious in the form of
categorical aid grants (most often federal in origin) available for use only in
specific program areas. Four of the agencies interviewed (Police, Probation,
Health, and the Schools) mentioned being subject to the strictures of categorical
aid grants. These agencies mentioned the dilemma faced whed specific funding
ended and the agency was forced to deal with continuing or not continuing
a service by diverting other resources. (This is almost impossible.)
The same problem was faced in the use of special project funds. The School
District specifically cited the funding restrictions imposed by passage of SB90,
(restricts Increases in real property taxes) which limits revenues available
to the school. (This also has obvious Implications for the problem of "Ade-
quacy of Service".) Some state and federal categorical funds are close-ended
appropriations, which the state allocates to each school district. Others are
close-ended, for which school districts must submit their proposals in compe-
tition with others. Since categorical funds are restricted for spebific use,
there is no room for versatility. It was also pointed out that "the Board never
looks for funding of successful projects when the project grant runs out. They
lot the program drop"-
The Health Department spoke to this issue by stating that the funding
amounts are generally not codified in law, except for a few specific programs.
As In all categorical programs, there are restrictions an the use of funds.
-7-
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Special Projects funds are limited, in that some are designated for certain age
groups while others are for geographical or special ethnic groups. These
funds are also for specified periods of time. Thus the amount of services
rendered and how long these special services are available are limited. Many
times these services are no longer available once the grant has terminated.
C. Adequacy of funds
This was a relatively simple area to analyze, since all agencies which
spoke to this area were in accord that their level of funding was too low;
therefore, services delivery was also limited because of the lack of fiscal
support. A significant problem stated by the Health Department was the lack
of continuity in programs because the funding shifts without continued support
to existing programs. The development and maintenance of specific programs
was too dependent on the uncertainty about availability of funds. It was also
pointed out that there is no one person designated to seek special projects
funds for that agency. Thus when an application is made it is usually pre-
pared by whoever on staff has the time to prepare it. (Usually the Planning
Group of HRA is not utilized to any degree in this effort.) However,, the major
Impediment to effective service delivery was felt to be the limit on resources
occuring in the county and state budgets. Funding is inadequate in relation
to the kinds of services and quality of programs that should be offered.
III. LEVELS OF REGULATORY OBSTACLES
After ascertaining the administrative jurisdiction under which these agencies
operated, and the funding sources, attempts were made to distinguish at what
level regulatory obstacles had been identified by agency staff.
A. Federal
Few obstacles were noted by the agencies at this level, except for Social
Services which found itself in conflict with separate parts of its program ad-
ministered by different levels of government. Most of the agencies interviewed
(six) were not federally administered, even though they all may be receiving
some federal funds. However, this area was not considered a major problem
for Social Security, the one federally administered agency participating in the
Allied Service process.
B. State
Most problems were noted at this level, with the state having respon-
sibility for administration and the counties responsibility for operations.
There seemed to be a generalized feeling that in addition to inadequate
State funding (uniformly cited) , the State was too removed from the actual
problems to administer. Additionally, it was mentioned by a representative
from the Health Department that the State mandates more services than
available funds and staff can provide. It was also stated that excessive
control on the part of the State inhibits operational innovations. (State
legislation SB90 was cited.)
C. County
Probation and the Health Department were the only agencies to speak
specifically to this area, citing the obstacles of budget and staffing. How-
ever, all agencies cited inadequate financing and staff as contributors to
inadequate service delivery.
D. Multi
Social Service particularly spoke to the need for service integration
between all levels of government. It was stated that there should be reason-
able integration of programs administered at the federal, state, and local
levels, with a means test (eligibility requirements) for Social Services and
Income Maintenance being administered at the same levels. A problem exists
with the adult programs because Income Maintenance is administered by the
Federal government and Services are administered by the State and County.
Integration must occur at the local level in order to effectively respond to the
needs and desires of the community.
It was stated that the supervisory role between the State and County
should be redefined. The State has too much control on program. After iden-
tifying what is to be accomplished, State control should only extend to those
areas where uniformity is required between counties, e.g. , State reporting
and forms. The more removed from those doing the job, the more ludicrous
the attempts are to define and control how the job is done. Excessive control
without workable knowledge of local needs inhibits effectiveness and innovation.
-9-
W
IV. PROGRAM OBJECTIVES
' The Committee attempted to ascertain the formal goals and objectives as
well as the informal direction being generated by agency staff. Seven of the
agencies operated under the direction of major program objectives. Four of
these had very clearly defined areas of involvement, while three of these
' agencies (Health Department, Medical Services, and Mental Health) were
operating under objectives that were stated in very generalized terms. The one
' agency without a statement of definite major objectives, Social Services, was
described as being in a constant flux and operating to a large degree without
' established priorities at the federal, state or local level.
The goals and objectives for Social Services and Income Maintenance are in
the process of being developed by the Social Service Department and Human Re-
sources Agency. Because this is occurring at the County level, administration
' feels that this demonstrates a major problem with public welfare legislation. Wel-
fare legislation is viewed as addressing issues from the wrong perspectives (i.e. ,
mandatory or required services, which are an end in themselves) without
' specific objectives as to the focus of efforts. (The WIN program is an example.)
It was stated that the local agency is told to do certain things without a definite
' statement of objectives. Accountability is for taking a particular action, not on
what is achieved with the action. Administration feels there should be no man-
datory or required services; instead federal and state government should identify
what problems they wish to solve and determine how much money they will
' spend on these particular efforts. Federal and state government should establish
priorities and define objectives, then the county or local entity should be allowed
to propose its own method for meeting these objectives.
A general objective of the Social Service Department is to remove barriers
which prevent clients from successfully getting off aid (becoming self-supporting) .
In this context two kinds of goals are said to be confused: those requests by the
clients for services and those of the public which deal with community-wide
' problems. These goals should be clearly distinguished and addressed in accor-
dance with the resources committed to them.
' -10-
All three of the agencies with generalized objectives were dissatisfied with
the focus of the agency directions, most of which are codified by state laws.
For example, medical and mental health services are basically oriented toward
inpatient care, where administration sees the need to be in the area of outreach,
early treatment, and prevention.
Again, Social Services administration felt that service areas would differ
if there were some reasonable means of long-term priority-setting. Basically,
priorities are set as crises occur, with no real commitment to services. Usually
programs are given priority based on the level at which the program is fundable.
This was also the feeling of administrators for other agencies.
Those agencies with clearly stated objectives were those working within a
limited scope of human services delivery. This is clearly demonstrated by the
objectives of the Police Department and Social Security administration. Those
agencies with a wide range of services were less inclined to have clear objec-
tives, and, as found with one (Social Services) no stated major objectives.
■
A. Service Areas
Those agencies with clear objectives were most specific in describi-ag
their services areas. For example, the Social Security Administration *
stated that it provides financial assistance in four categories: (1) Old
Age, Survisors, and Disability Benefits based on wage deductions for con-
tribu6rs and their families; (2) bIedicare benefits for the aged and
disabled; (3) Supplemental Security Income benefits for the aged and
disabled (the Federal Public Welfare Program which replaced the .state
programs of Old Age Security, Aid to the Disabled, and Aid to the Blind)
and (4) State Supplemental Payments (the state supplements the Federal
SSI grant in order to bring grants up to state standards) ."
Some of the "service areas" were described in terms of geographical
boundaries. For example, the Police Department's service area was the City of
Richmond, which reflects a difference in interpretation of the term. The Health
Department described its services by addressing the kind and number of staff
available to provide services in a given program i.e. , Public Health, Housing
and Sanitation. It also designated the four main offices located in Richmond,
Martinez, Pleasant Hill, and Pittsburg, which service the major geographical
areas of the county.
N1,
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B. Adequacy of Services
None of the agencies felt the services they offered were adequate; a few were
more nearly adequate than others. Some of them were very specific in stating
the problems and recommendations considered to be significant to this issue:
(1) Medical Services and Mental Health: A significant problem in the
delivery of services is the restrictive eligibility requirements and general
funding mechanisms for the categorical programs, particularly in drug abuse
and alcoholism. Eligibility requirements for all health services should be more
liberal in their specific requirements as well as the population they cover. The
Medically Needy Only program (with its liability) -results in peoplo being at
low economic levels before they will. secure help. Thus it perpetuates crisis
interventions rather than a sound program of positive health. Recommendations
have been made to the Human Resources Agency which would simplify and broaden
eligibility, but no actions have been taken to date.
The patchwork programs and different eligibility requirements are not the
only deterrents to patients' using existing services. The current thrust has been
to determine eligibility prior to receipt of service, which also screens people out
of the delivery system. More consideration should be given to the patient"i onn-
dition in determining when and where the eligibility information will be gathere'J.
The concepts in the Prepaid HealthPlan and Health Maintenance Organizations
should be applied in order to make services more accessible and more adequate.
Gaps in mental health services are occurring because state hospitals are
being closed and community-based programs are not being funded. In addition,
Short-Doyle community mental health programs are decreasing as eligibility re-
quirements become even more stringent and the fee schedules become higher.
(2) Health Department The level of services is not considered by staff to
be adequate, primarily due to lack of funds and staff. The department is also
mandated to provide more services than it has funding to provide. The require-
ments for eligibility determinations and the different eligibility standards for
each program present major obstacles to the accessibility of services to many
clients. Funding sources may also be unnecessarily rigid in determining what
organizational entity will administer a particular program, which is detrimental
to integration or coordination of the various parts. An example of these problems
exists with programs for alcoholics.
-12-
M�
-wvi
A gap in health service occurs in the public schools because county
policy is not to spend money where the schools have their own revenue, and
schools are not committing many resources for health. There are no federal
or state-mandated children's health programs (except possibly Medi-Screen
for AFDC children) .
There is also a problem with various departments working together,
partially because of the differences in philosophy of their personnel. How-
ever, good cooperation exists between the Health Department, Social Service,
and to a lesser extent with Medical Services, Probation, and the Sheriff's
Department (in this order) . The degree of coordination is dependent to some
extent on the sharing of mutual clients.
The case load determination with respect to nurses is made by the super-
vising Public Health Nurse (PHN) . The case load ranges from 90 - 120, which
does affect the rate at which these cases are followed up. (The supervisors
also determine if the PHN has time to carry out other special activities) . In
addition, there are several road blocks to securing qualified nursing staff;
one is the salary level, another Is inability to get jobs reclassified. For ex-
ample, nurse practitioners are paid the same as PHN's.
Decentralization of services is viewed as the best way to carry out the
department objectives. It is more profitable to the clients if services are taken
where they are easily accessible. In some instances it is not possible to take
( ' services into the community (for example, family planning clinics where
special equipment is necessary) .
It is anticipated that as the Health Department establishes long-range goals
and plans for future services', careful consideration must be given to the kinds
of services which are reimbursable. Many of the services now provided have
no funding other than county funds to support them. Thus the amount of
services rendered is limited. Priorities for services are based on immediate
needs and the extent to which the Health Department vs some other voluntary
agency is equipped to do the job.
-13-
W. o
q
C. Duplication of Efforts
Only one agency mentioned this specifically: Social Service indicated
that some client problems --(by their nature)-- require the involvement of
more than one agency; for example, children who are battered or neglected
are the concern of Protective Services for Children, but there are usually many
problems addressed by other agencies working with the family. Emergency
Assistance (food and shelter) depends on the applicant's eligibility, regardless
of his need. It was also felt that the Social Service Department should sub-
sidize private f3od resources. I
It has been the County's decision to use the WR-2 form in General Assis-
tance. The rationale is that General Assistance applicants may be eligible for
Medi-Cal or other categorical programs, and use of the lengthy form reduces
the number of different forms required.
V. LEVEL OF STAFFING
After considering the goals and objectives of the agencies and the level of
funding and services provided, the Committee examined the level of staffing in
each agency with regard to: (a) restrictions on flexible use of professional
staff, (b) fulfillment of commonly accepted staff standards, (c) procedures for
setting program priorities and staffing accordingly, (d) recommended action, and
(e) who should take the action. The analysis is presented by agency in Table 2.
A. Flexibility
There were varying degrees of restriction in the flexible use of professional
and allied professionals by these agencies. Some of the concerns raised included:
(1) A degree of flexibility which might prevent follow-through with
a spocific client.
(2) Too much restriction in the use of allied professionals.
(3) Bureaucratic processing, which limits effective minority recruitment.
(4) Limited use of non-county staff, and;
(5) Limitation or lack of funds for required in-service staff training.
-14-
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' B . Professional Staff Standards and Priorities
Staff standards and priorities are set by state law for Public Health
(Medical Practice Act and Nurse Practice Act) , but the extent to which they
are met was not determined. The Ryan Act establishes personnel staffing
patterns for schools with the priorities for instruction also being established
by State Education Codes. Aside from these instances, there were no specific
staff standards stated by the other agencies except for those historically set
by the county hiring practices.
C. Utilization of Staff
The Health Department spoke particularly to staff utilization. Although
standards are necessary and serve a useful purpose, they tend to restrict the
flexible use of staff, particularly with para-professionals. Para-professionals
are not licensed and the department must be careful in their assignments. State
Attorney General Younger issued a report which was critical of the extensive
use of allied professionals. Even though community workers might be per-
forming functions normally done by professionals, they are not paid according
to their level of performance. For example some community workers have been
employed since 1965 but are still on project status, because they are not allowed
to advance and become permanent employees.
i .
1 •
-15-
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n i id
VI. CITIZEN PARTICIPATION (Policy Making)
The Committee examined the extent to which citizens participated in
policy making, their assurance for consumer protection (confidentiality) ,
and mechanisms for client grievance. Citizens' participation as it cur-
rently exists in the eight Allied Services Agencies is entirely advisory in
nature. Two approaches predominate: The "Advisory Board" approach as
in Health (Family and Childrens Services advisory committee), Schools,
Medical-Mental Health, and Probation; or the informal community outreach
approach that solicits community advice as used by Social Security and the
Richmond Police. (Operation I.D.) .
None of the agencies dealt with citizen's participation in the area of con-
fidentiality. The Home Health Agency has a Peer Review System that may
deal with grievances,although this is not spelled out. The Social Service
Department has a "Fair Hearing" procedure for client complaints.
None of the citizen's participation programs really involved the citizen in
policy-making. It is clearly spelled out that "advisory" groups are just that,
advisory, and the Board of Supervisors is free to ignore their advice. This
fact derives from the concept (simplistically stated) that In a democratic
society the citizens set policy by el-icting officials to represent their point of
view who in turn hire staff to carry out the will of the electorate.
The process can work well for small communities (30,000 maximum) but
it becomes useless in large communities where the elected officials must hire
thousands of people to staff the various institutions the community needs to
function. It is thus impossible for a small group of elected officials to know
all the needs of the communities they serve.
Some specific comments made by various agencies on the issue are as
follows:
A. Health Department
There is organized community participation at several levels. The Health
Department has an advisory board (largely medical) that meets on a regular
basis. Many projects have their own community advisory boards, e.g. EPSDT,
the "Health, Older Americans Project" and the alcoholism program. The Home
Health Agency has a peer review system that utilizes both community and pro-
fessional.input.
-16-
1_6__1
B. Social Services
There is a Fair Hearing procedure open for clients' complaints re-
garding Income Maintenance action. There is an informal system In Foster
Care. Other than those, the "squeaky wheel theory" applies.
C. Social Security
Although there is no formal structure for community participation, the
District Office and branch maintain an active program of meeting with and
speaking to interested community groups. Community organizations such
as councils on aging are solicitied to make recommendations concerning
deficiencies in the Social Security programs. These recommendations are
forwarded on to Central Administration (Washington, D.C ..) for considera-
tion in developing legislative proposals and administrative policy. Commu-
nity groups have been asked to assist in locating persons who may be
eligible for benefits and assisting them make application.
D . Schools
Under Title 1, community participation through advisory committees is
mandatory. There are 100 members, forming advisory committeos at 41
schools, They include representatives from the schools and comm-.1nity.
Members are selected by the principal and the Board approves them. In
addition, there are PTA organizations in all but two schools. (They have
parent clubs instead.) Some principals have parent advisory committees.
Each vocational education program has an advisory committee. The Board
of Education also appoints ad hoc committees, which include citizens to
work on specific issues and provide advice to the Board. The significant
impact these advisory groups can have on policy decision was d6monstrated
in the Boards attempt to forfeit state funds rather than to comply with affir-
mative action policies set by the State Department of Education. The efforts
of these groups not only forced the State Department of Education to adapt
guidelines regarding affirmative action compliance, but was instrumental in
the adaption of an affirmative action policy by the School Board.
Complaints against teachers made by parents are usually worked out at
the school but can be referred up to the superintendent. The rules and pro-
cedures for expressing parent concerns are printed in English on a card and
must be reviewed and signed.
-17-
j"
RI
A�
N-1 k4 M0 i", ig "'L
E. Police
Generally the community is apathetic in participating in Police Policy,
except on particular controversial issues. This was demonstrated by the
lack of motivation in the Operation I.D . , Burglary Prevention Program.
The lack of participation is attributed to the feeling of "Don't want to get
involved" . Neighborhood meetings with police officers are encouraged
and speaking engagements are invited.
F . Probation
The .juvenile Justice - l)eli.nquency Prevention Commission is an ad-
visory board to the Department and Juvenile Court.
TABLE III COMMUNITY PARTICIPATION
POLICY MAKING CONFIDENTIALITY GRIEVANCE
Health Advisory None Home Health
Many special advisory (peer review)
committees
Social Family s Children's None Income Maintenance
Service Service Advisory
Committee
Schools SAC DAC Mandate None None
Vocational Education
Advisory Committee
Medical Mental Health Advi- None None
Mental sory Board and Drug
Health & Alcohol Advisory Boards
must have consumers.
Probation Juvenile Justice-Delin- None None
quency Prevent. Commit-
tee is advisory to De-
partment and court.
Social Solicits advice from None None
Security community organizations
on program deficiencies.
Requests help in finding
clients
Police None currently. None None
Request some outreach.
r ,t ig?E
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' VII. CONSUMER PROTECTION
In examining the area of consumer protection, the Committee utilized
materials from the interviews as well as information derived by working with
1 the Joint Monitoring Team and the Human Resources Confidentiality Committee.
This proved to be an area where the Committee felt a thorough assessment
should be made on a long-term basis. Hopefully, this will take place over the
next G months within the framework of the Joint Monitoring Team efforts.
A. Health Department
The Health Department operates under a policy of an individual determi-
nation of whether information should be shared based on whether or not it is in
the patient's best interest (within existing legal constraints) . After reviewing
' the present practices of information exchange, it was evident that there is an
attempt at preserving the clients' rights to confidentiality. However, there are
' some concerns regarding the following areas: (1) the release of information
form allows that "any" information can be disclosed; (2) the ease of access be-
tween the Health Department and Medical Services does not require that the
purpose for the information exchange be cited; (3) the extent of the informa-
tion given for identification purpos:is; (4) in a court subpoena of records, the -
"public interest" is not defined; and (5) several items of information received
were marked N/A for not applicable, but there was no policy established to
govern the manner in which it may be shared when applicable.
B. Social Services Department
The laws on confidentiality which apply to the Social Service Department
are vague, and when used they are interpreted as needed. There is no written
departmental policy. Professional staff has to determine whether the release of
information will be helpful to the client. It was evident that there needs to be
more than a client-by-client approach in determining what information can be
shared. The agency needs to develop a formal system for sharing information
and policies governing the confidentiality of this information, particularly
because of the complexity of its component parts. As a result of the Allied
Services efforts, a task force has been appointed to develop agency policies
-19-
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u
and procedures. To date little progress has been made in the area. The
Chairman of the task force has stated that they are awaiting the interpreta-
tion of new regulations.
C. Richmond Unified School District
The California Education Code contains a section on confidentiality which
governs the sharing of total information. School records are confidential and
are unavailable to outside agencies or persons without written permission from
the parents. However, teachers and school counselors can speak in genera-
lities concerning the behavior of a student without such written permission,
and they do so with Protective Services Workers, the Police, and Probation.
The present practices for Information exchange were reviewed with a repre-
sentative of the agency, but the extent to which present practices would be
maintained was uncertain because of new codes governing information-sharing.
Further study of the new State Education Code is necessary to clarify some of
the questions raised with respect to who may receive information from the agency,
the kind of information that is shared, and what the parent's and student's
rights are.
D. Contra Costa County Medical Services
The Committee raised numerous questions regarding the present practices
of sharing information. Some of them which need to be clarified include: (1)
what procedures are used to confirm who is making a request by phone, (2)
what are the procedures for handling records in Alcohol Detox outpatient
facilities, and (3) in Methadone programs.
There was considerable concern about the circumstances under which the
"blanket release of information" form is used. It was not known by agency staff
whether there was a policy regulating its use. A more specific release of infor-
mation form Is needed to prevent the implication that a person "has been re-
ceiving mental health treatment" because of the rejection of the general request
for release of information.
_20-
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444:4 XP
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E. Richmond Probation `
Use of Adult Probation Records by Outsi& Agencies and Psychiatrists
Records of the Probation Department in the •Adult Division are at 'all times
open 'tothe inspection of the 7 Court, by' 'any person'appoint ed''by `the Court
{
for that,purpose, as;well as all magistratos', chiefs .of police or other
heads` of police unless otherwise ordered by the Court {1203.10P.C.} , The
;Probation 'Officer may also direct °that probation records should'be'mnde
avi,la�il a;to, ;and may be ,xeyiewed,by, other_agencies, including .P,robation
Depeift[ehts, recognized social agencies. and law enforcement agencies.
Ingot t�Qn may; be released to`.other' agencies; `or` parties; upon rsceipt
`af an °authoxization for release of information signed by the probationer. .
"Up6Y9'icorder of the Court, probation records and reports should be .Made
a�rilatile to, psychiatrist's, including-psychiatrists appointed by the+Court
to `iikafhinei persons known to the Probation Department.
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' �,�xw w' ,� -t a~;��.E•,}'.Sh>7.. ya,�" s>. �3fiP�,.. ��,�4^` .°r �r ai��+,}�`',,,Gu ✓x,.z.«Y� *F � I � f .� e�"'.' k' i ta.. '" � _,
'fir'-rl�,¢ fi "�,{^ a�a qe<°�,?!s�: '�-i " *,r i •
rfSx x;
The rationale behind the mutual sharing of Services -ind Mental
Hf.,-.%1th nucords, ivith the Health Depart.—I-ent with no burden of proof as to ,=ihy
th-O inlOrMiZLtion is nee.Ced should be forth. Thoro is a grave breach of
the clijnt's right to con"id,--ritiality caused by the prosent, practice that "the
appointment desk may give out informa Lion its to whether or not a client did
or did not inake a clinic visit
E. Rich-mo-rid Probation
All Adult Probation Department records are public for 30 days. Juve-
rdle records are never public records. There are no restrictions for providing
0
information to other agencies that have a mutual relationship (treatment and/or
rehabilitation) with the client. The agency feels it does have a problem in
getting information through formal channels from other agencies.
There is no set policy on how information is "secured" once it is in the
files of the Probation Department. It is generally assumed that information,
may be shared between agencies without release. The present practice of
information exchange may vary in some divisions. A case by case det6r'rhkina-
tion in some divisions is made of whether or not there is a "mutual relationship"
wifn the agency requesting the information. However, thero is ne. set policy
on how to interpret I'muttual relationship" nor is there any general inservice
trairdna of staff on how to make these decisions. Even though a consent form
is available, it is not considered cfficial.*
F. Police Department
A decision by the California State Supreme Court known as the "T.N.G.
Decision" (the initials of the youth involved) prohibits information on, juve-
niles being given to anyone except by court order. However, a county
Superior Court judge has interpreted this to allow that information (not full
reports) can be provided to concerned agencies with bor.afide interests. Tile
rap sheet on adults can be provided, but not on juveniles. The victim of a
crime may also request information. Information is exchanged with school
0
officials and school counselors who are assigned to work with the police on
5.
-21-
The Probation Department submitted a paragraph it believes Is a mono correct
i statement of its records-sharing'policy than this one. Although tho Legis-
lative Task Force retained the original paragraph, ,the Probation Appartment's
statement is included on the 4
:)PPosite page.
G501
Of,;W I, 1;-,
the Diversion Project. Other than that, it was stated that the police have
difficulty In obtaining information, which they frequently need to get
sufficient background in order to understand the situations with which
they are dealing. They make limited referrals to Mental Health and (with
the new Allied Services effort) to Social Services. There is good coordi-
nation with the Protective Services Workers from the Social Service Depart-
ment, as well as with the Probation Department. The Police Department
feels that information should be free-flowing when it serves the benefit of
the client.
There was no policy or practice describing the present manner in which
Information is exchanged to show how information given to other agencies is
made "secure" once it is a part of the files of the other Department. In addi-
tion, departmental orders relating to the release of information were not
available,*nor had the law (code) governing the confidential clause been
made available from the State Attorney General's Office.
G. Social Security Administration
The Social Security Administration has a nationwide computerized infor-
mation system. Data is not shared except in relation to the conduct of Social
Security programs. Problems occasionally occur with mix-ups in names and
numbers.
It is possible to change names for Social Security purposes. (The new
card will show the name requested, but the number will remain the same.)
If the intent is illegal, the attempt to manipulate the Social Security record is
punishable. A recent addition to the Immigration Statutes requires that if an
alien applies for a Social Security number and cannot produce evidence of
legal admission to work-in the United States, the Social Security Administra-
tion is required to notify the Immigration and Naturalization Service of this
application. The applicant is always advised of this procedure in advance
and if he wishes to withdraw his application for a Social Security number,
no further action is taken and no information is forwarded to the Immigration
and Naturalization Service.
-22-
34 klR, ,4'4.4,
AAA rV
VII. CENTRAL INFORMATION SYSTEM
In light of the proposed*plan to establish a countywide Human Resources
System, the agencies were also asked to express their views with respect to
the countywide computer concept. Only three of the agencies ma-de definite
statements on this issue.
A. Health Department
The Health Department felt that certain countywide statistics are neces-
sary for program planning, but there must be sufficient safeguards in a
centralized information system to limit who has access to the computer and
what Information can be shared. All possible means must be employed to
protect the confidentiality of the consumer. Much of the information proposed
for the central information system is already on computers in certain divisions.
This central sharing of Information may discourage the clients from utilizing
1 the services.
B. Probation
Probation stated there is currently a State-level, computerized system for
criminal statistics (not an Index) , but it does not provide sufficient information.
The Probation Department is developing its own information system that may be
integrated with the Human Resources System of the Human Resources Agency.
C. Medical-Mental Health
Medical-Mental Health services felt that a large computerized information
system shou,Ad not be undertaken at this time. It could be potentially useful,
but much homework and planning is needed in order to identify what the
county department's requirements are and what system will best meet them.
A computerized hospital information system could be useful by itself, In addi-
tion, Mental Health laws will only allow the sharing of patient information with
the patient's signed permission.
IX. PROPOSED LEGISLATIVE CHANGES
The heads of agencies were asked to make recommendations as to what
legislative changes they would propose to better facilitate effective services
delivery. Six of the agencies responded to this question.
-237
z�
V,11- k�a
A. Social Services
' Social Services recommended the removal of legislative and regulatory
restrictions which have served to mandate specific social service programs.
' However, with the passage of the Social Security Amendments of 1974 as re-
flected in Public Law 93-647, it is believed that a large part of these concerns
may have been relieved and an enormous step forward has been accomplished.
All mandatory social services have now been removed from the federal regu-
lations.
egu-
lations. What is left are five fairly broad goals and the requirement that a
State Plan be proposed to implement the new Title XX Provisions, The focus
now is on the State Department of Health, which must determine the content of
the State Plan and the process which will be followed in reviewing and adopting
the plan.
Title XX seems to require only that the State Department of Health publish
a plan and encourage comments to be made. There is no requirement for ci-
tizen input and no requirement that public hearings be held or other oppor=
tunities made for community and consumer input. It is important, however,
that the State Department of Health develop a State Plan which leaves as much
flexibility as possible with counties. Social Service encouraged the Legis-
lative Task Force to recommend strong community-based participation in the
development of the plan and in the review and adoption phases.
B. Medical-Mental Health
Medical-Mental Health expressed grave concerns about the deplorable
legislative cycle whereby "cutbacks are made in the Fall, legislators brag
about them in the Spring, pressure is brought by counties (who bear the
costs) , and then legislators make patchwork efforts to provide remedies."
It was stated that the old mental health system of commitments was abused.
Legislators didn't listen to concerns from mental health professionals, and
passed the Lanterman-Petris-Short (L.P.S.) bill, which went too far in giving
the patients choices for hospitalization. This has had a side effect whereby
patients who are being treated for mental illness (but not hospitalized) are
-24-
'i. n..i '
rY.AiEPikr s.i. ;•d'' r..3"-' ,t`.%(
t
getting picked up by the criminal law system. There is currently a review
of the L.P.S. law at the State level which will attempt to move in the direction
' of granting more authority to local health officials and staff.
It was suggested that.a more liberalized interpretation of current legisla-
tion is needed to allow a patient to be held as an inpatient for a three-month
period without restrictive elements of the law where the person does not
qualify for conservatorship. Additionally, more money is needed in the Con-
servatorship program.
' C . Schools
In the opinions of those interviewed (not the Superintendent or the Board
of Education) , the Ryan Act should be revised to allow more flexibility in the
assignment of certified personnel. The limitations on revenue in SB90 nega-
tively affect urban areas and benefit suburbs. There is an "urban factor"
whereby expenses in large cities are greater, including security, mainten-
ance,
ainten-
ance, insurance, and supportive services for urban areas to cover higher
costs. SB1592 (Dill) was favored because it is a proposal to establish a rate
of $50 per child.
D. Probation
Probation favored a proposed legislative change to require a B.A. degree
for entry Deputies. It was suggested that there should be more diversion
' services provided that will prevent entrance into the Criminal Justice System .
In addtion there should be efforts to expand the work furlough program in the
Sheriff Is Office.
E. Police
The Police Department recommended changing Section 625.1 of the WK
Code to eliminate the necessity of obtaining a warrant or a citizen's arrest to
take into custody a juvenile who commits a misdemeanor not in the presence
of an officer. Currently, citizens sometimes call the Police Department re-
garding a juvenile who has committed a misdemeanor but will not sign a com-
plaint. The Officer may talk with the juvenile but cannot take any further action
unless he had witnessed the crime or a complaint is signed. This is not a major
problem, but occasionally limits the actions of the police. There is an inconsistent
' application of this law in different cities.
-25
�,`i'•!n' d ry ! k '`N 2 A'..i}7'7 ( .e- a J+ h t t k. S#�# ,s h y ,'}rt:
P a.. •'c�}fF�, ,..,» i y.� ,nu .7-..-i �„ ir ,,-� lo. a �S i� ,.,3� * Pl+.,'.'e Yx., !v'f.5rj >+.'- r ".F� k:f,r4 -c' -`d S d 1.4+3i,1�`t7 �,. .�rg..r y ,:1'. r•.,,a�';s
i'•:r, .�. '� p;*;I.+:.;..E;1:.hn-iar4'vke ''+�Sf••:"x :'�" �:iEi'�, Y, ,z• 4 }r;:..� .L}`Aiv.{# ?d •.,"tF+3'. •��, S •a•"i. 'L 3'a, �.'a.
Juveniles were said to be treated too much like adults in the Juvenile
Justice System. There should be legislative changes to make the hearings
nonadversary and focus on the individual, not the crime.
F. Social Security
Social Security felt the most significant legislative proposal for change in
the Social Security system is contained in a bill developed by Congressman
Ronald V. Dellums. It proposes taxing all incomes up to $25,000 a year and
provides for a refund to low-income persons through the mechanism of the
Federal income tax.
X. COMMENTS AND CONCLUSIONS
The Legislative Task Force Committee attempted to assess its progress in
carrying out its directives. After considerable discussion and reflection, it
was agreed that up to this point the Committee was just beginning to appreciate
the variety of problems and issues inherent in the administration of the various
human service agencies. The question of human services integration is an
issue much too large to be sufficiently tested out in a 2J year period, and most
definitely as it relates to citizen participation. To date, there have been an
insufficient number of issues presented where the very essence of the citizen's
role (whether advisory or decision making) could be tested.
Relative to legislative recommendations, the Committee found that the
agencies were more inclined to react to the adverse effects of legislation and
regulations as opposed to recommending specific kinds of legislation that should
be developed. However, some were very definite about the kinds of changes
they would like to see take place. These suggestions need to be further ex-
amined to determine if they can be developed into legislative proposals.
Even though some agencies spoke of the lack of specificity of program
goals in the establishment of priorities for services and subsequent staffing,
it was evident that the question of not enough funds was the prevailing issue
surrounding inadequate service. Little attempt had been made to examine
seriously how to reallocate what is available or to figure out ways of getting
things done without expending new monies. There is no mechanism set up to
evaluate the effectiveness of on-going programs or to determine the need for
reallocation of funds.
-26-
Community (citizen) participation has not been utilized to any signi-
ficant degree in program planning and review. Most often, advisory com-
mitties were mentioned in the context of legi.slative requirements for the
receipt of special project funds. Generally speaking, citizens have not been
considered by administrators as having the ability to assist in decision-
making. However, this Committee feels that the opportunity has not been
afforded, nor has this input been given the support needed for successful
implementation.
Agencies need to recognize that they exist to provide for the needs of the
community they serve, and to accomplish this it is incumbent upon them to
establish an ongoing system of community participation to set policy, Insure
client confidentiality, and provide a mechanism to resolve grievances inter-
nal and external to the agency.
Confidentiality and consumer protection turned out to be probably the lar-
gest single significant issues from the point of view of the consumer. These issues
have barely been touched and will receive additional consideration by the Commit-
tee for the remaining life of the Project. The Committee, in cooperation with the
Substance Abuse Monitoring Team, will work further to examine confidentiality
and consumer protection In the context of Information Sharing Implementation
Plan V. It is also an area which needs long term follow-up; thus the Commis-
sion should consider ways in which this will be accomplished,
The Committee further expressed concerns that the Commission has been
addressing "implementation" issues and has not had the opportunity to address
in an in-depth manner how representative a body it really is and how to bring
about broader representation of its membership. Sufficient opportunity has not
been allowed to establish alliances with other citizen groups, particularly those
in the County with similar responsibility. Thus, the long range goals for the
Commission still need to be established and formalized.
Another issue raised was the recent exposure the Commission had with an
attempt on the part of another advisory group in the county to politicize the
Commission. To date, the Commission has had no time to assess dispassion-
ately the implications this has on its representational role or how best to be-
come removed from this kind of area if so desired.
-27-
N'N
4 ik
The question of the autonomy of a citizens' body needs more in-depth study.
A broad-based mechanism for continuing consumer (citizens') input at the county
i
level in program planning and policyman services
in areas engaged in 1 u
delivery needs to be established. The appropriate composition of such a group
and the administrative base should be explored by county administration and
the various commissions and advisory groups in the county. A viable financial
' support mechanism should be established as well as administrative authority
for action.
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9
XT. RECOMMENDATIONS
THE LEGISLATIVE TASK FORCE COMMITTEE RECOMMENDS THAT THE COMMISSION:
1, Review the Report of the Legislative Task Force and take necessary action
to transmit it to the appropriate persons and bodies.
2. Consider reviewing its by-laws within the next 6 months and make necessary
amendments.
3. Discuss and explore ways in which the Commission will be sustained when
the project is completed as well as how it should be constituted and supported
financially,
4. Consider expanding its efforts into areas and issues outside of those agencies
presently participating in the Allied Services process.
s regarding the possibility of sponsoring
5. Reestablish contact with legislator
new legislation,
6. Follow up the question of citizen participation in the review and adoption of
the State Plan for Title XX.
7. Review the implications of the Commission's relationship to Project Staff and
the Allied Services Board in order that the knowledge gained might be
shared with other citizen's groups and also be utilized as background in the
development of a county wide citizen's advisory body.
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I
APPENDIX #1
ALLIED SE11vrCF'S CO,NFIIFSION
OF
DESIGN OF A PRF-TEST OF T11F. ALLIFD SERVICES ACT PROJECT
PRA7FCT PURPOSE
The Design of a Pro-Test of the Allied Services Act Project
(referred to in this document as the pre-Test Project) shall work to
reorganize the human service delivery system of Contra Costa County to:
(a) Ensure mAximum coordination between all
pertinent elements
in facilitating access to, and, to improve the effectiveness of, all the
human services;
(b) Assure accountability of the providers of these services
to the consumers of the Project area;
(c) Enhance utilization efficiency of human services resources,
(d) Assure maximum participation of the Project area in the
Identification of their needs and in continuing evaluation of the human
sorvice delivery system, so as to achieve maximum personal independence,
dignity, protection economic self-sufficient
Y* physical, social, and
mental wellbeing of individuals and families through the establishment
Of an effectivo and efficient human services program.
COMMISSION PURPOSE
The Allied Services Commission shall bringto
the human services •
system the desires And the strengths of the community at largo and shall
work with all service constituents to assure that the community is the
uJtiM,te Lencflciary of the activities of that system.
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t
UY-LAWS
ARTICLE I
COMMISSION ORGANIZATIONt
Section 1. Name -- Thiu group shall ba known as the "Allied Services
Commission," hereafter referred to as the Commission.
Section 2. Organization -- The Commission is a confederation of com-
munity and professional groups and organizations. Officers are elected
by the general membership to serve as administrators of the Commission's
business. These officers, together with representatives from each committea,
comprise the Executive Board, which is the governing body of the Commission.
Section 3. Affiliations-- Upon acceptance by the Executive Board,
the Commission may affiliate with local organizations andlor groups
consistent with its purposes.
Section 4. Commission Autonomy -- The Allied Services Commission is
an autonomous body. Actions by this body shall not be nullified by anyone
other than Contra Costa County Board of Supervisors. Action taken by the
Executive_Board of the Commission shall be binding upon all activities of
the Commission, subject to review and ratification by the full commission.
ARTICLE II
COMMISSION MEMBERSHIPt
Section 1. Eligibility for Membership -- Eligible for membership are
community and professional organizations and groups and individuals living
or working in the Project'area. Each organization or group shall delegate
one (1) representative and one (1) alternate to serve on the Commission.
Persons eligible shall be granted membership without regard to race, creed,
sox, national origin, or political affiliation -- membership shall not be
limited.
Section 2. Membership Status
A. Active Members -- Active members are those current in attendance
of the meetings who aro within the jurisdiction of the.Commission
and have ,full rights and privileges. Current attendance means not
having missed three (3) consecutive ineetings. If this should
occur, the member is subject to recall failing a valid excuse.
Article III, Section T, shall apply'
Section 3. Rights and Rosponsibil,ittes --Active members have the. .
right to,attond moctings, voter, hold office, and participate in all Com-
mission affairs. They have Cho responsibility to work to fulfill the
purpose and accomplish the goals of this Commission.
�J
5� C�; 1;` a ,, F 4 x t r �_: S ct i��r;t sT�R( +xV!ns.;4f*��Si`� ' ��, r.5° �i.",rx•:i4:�"Y alk£ .°' �h�,K7 sic ����<<bl.�"�
section 4. New Members -- To add a new member organization or member-
at-Iargo to tho Corrunission, a request shill ho prevented to the Executive
Board of the Commisnion for review and presentation to the Comm ssiuu
membership for ratification.
Section S. Mrmber Replacement -- A vacancy In the general mendiership
shall be filled in the manner described in Article TT, Section 4.
AR71CIIE III
GOVERNING BODYt
Section 1. Ftembers:hip -- The membership of the Commission shall be
the final governing body of this organization. it may delegate Authority
to its Executive Aoard to fulfill the responsibilities with which the
membership has charged it.
Section 2. Commission Officers -- The affairs of this Commission shall
be administered by four (4) officers Chairman, Vice-Chairman, Secretary,
and Fiscal officer, as directed by the Commission's Executive Board. The
titles, duties, selection, dismissal, length of office, areas of respon-
sibility, and any other responaibilities of the Commission officers shall
be designated by the Commission Executive Board ratified by membership.
Section 3. Executive Board Members -- The members of the Executive
Board shall consist of the Chairman, Vice-Chairman of the Commission,
Secretary, Fiscal officer, and Chairmen of each of the following sub-,
comaitteess Program, Publicity, and Legislation.
A. Chairman
1. The Chairman shall be the executive officer of the Commission,
and shall preside over all Commission meetings.
2. The Chairman shall be one of the Commission officers authorized
to countersign all orders and policy agreements concerning tho
Commission.
3. The Chairman shall have the authority to appoint any ad hoc
committee necessary to the functioning of the Commission.
4. The Chairman shall be an ex officio member of all committees)
he shall have voting rights as a member of the Executive Board
of the Commission and shall vote on full Commission matters only
In the event.of a tie.
5. The Chairman, In the event of a vacancy to any office, shall'
appoint a member to fill that office, with ratification by the
Executive Board, until the next election.
6. The Commission Chairman shall servo as the voting representa-
tive of the Allied Services Commission to the Allied Services
Board.
B. Vice-Chairman
1. In the absence of the Chairman, or in the event of the Chairman's
inability to serve, the Vico-Chairran shall assunta tho duties of
the Chairman and such other duties as assigned to him by the
Chairman.
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C. Secretary
1. The Secretary shall be responsible for receiving all corres-
pondence and communications on behalf of the. Commission.
2, on direction from the Commission Executive Board, he or she
shall respond to correspondence and communication.
3. The Secretary shall be ronponsible for maintaining membership
records, including a current rtu:mborship Iist, addresses, and
phone tfumbers of the members.
4. The Secretary shall be responsible for the dintribution.of
Commission materials.
5. The Secretary shall be one of the Commission officers authorized
to act in behalf of the Commission.
b. The Secretary shall keep a correct record of the proceedings
of all Executive Board, general membership meetings, and be
responsible for distributing a copy to the membership prior
to the next general membership meeting.
7. The Secretary shall be responsible for filing a copy of the
minutes of all meetings with the Allied Services Board in
accordance with the Commission By-Laws.
- d. Fiscal officer
1. The Fiscal officer shall be responsible for the fiscal activities
of the Commission and shall maintain complete records of the
fiscal activity of the Commission.
2. Hejsha shall present the Commission fiscal activities to the
membership for ratification.
Section d. Elections
A. The annual elections will be held in June, and officers shall serve
from July 1 through June 30.
R. The Commission officers shall be elected by the general membership
by majority vote by secret ballot.
C. provision shall be made for absentee ballots.
D. The elections shall be conducted by an election committee selected
• by the Chairman of the Commission, which shall consist of five (5)
' members who are not candidates for an office in the election. This
committee will be responsible for validating ballots and publishing
the results of the election and to assure that the statements of
candidacy are available to the membership.
E. The candidate receiving the majority of votes cast shall be
declarod the winner. rn case no candidate receives a majority
vote, there shall be it run-off election between the candidates
with the highest number of votes.
Section-5. Nominations
A. Nominations shall be accepted from the floor of a general membership
meeting in may, with the consent of the nominees.
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Section 6. Torm of Office:
A. Ma officer may serve for more than two (2) consecutive terjim.
section 7. Recall:
A. Recall may be originated by a petition signed by at least. 30
percent of the active membership submitted to the Executive
-` Board of the Commission. After the recall has been originated,
the Commission Executive Board must refer the matter to a
general membership meeting of the Commission within 30 days of
the presentation of the recall petition. Before the secret
ballot is taken, the member being recalled has the right (within
30 days) to make a presentation relative to the recall ayainst
him. Upon majority decision of those present and voting, the
recall will be presented to the membership for secret ballot.
A majority vote of the entire Commission shall decide the
recall.
Section 8. Vacanciest
A. An office shall be declared vacant when a member of the Executive
Board resigns from his office or is recalled, or a Commission
member resigns from the Commission or is recalled.
B. An office shall be declared vacant when the holder of the position
Is absent from five consecutive Executive Board and general member-
ship
embership meetings without excuse for good cause by the Executive Board.
C. Office vacancies shall be filled by a majority vote of members in
attendance at a general membership meeting.
D. Those persons resigning from office shall submit a letter of
resignation promptly to the Executive Board Secretary.
E. Vacancies In the general membership shall be filled in the manner
set forth in Article Ir., section 4.
section 9. Commission Membership Meetings:
A. All meetings of this Commission shall be conducted in accordance
with the Commission's by-laws and-with Robert's Rules of Order.
B. The Commission shall have regular monthly membership meetings.
C. Special membership meetings can be called by the Commission Execu-
tivo Board or by the petition of ten percent of the members. .
D. Members shall receive written notice at least 48 hours in advance
of time and place of ail special membership meetings.
E. Any action taken by the majority of the full membership at a
general membership meeting shall prevail over any contrary action
taken by the Commission Executive Board.
F. All meetings shall be open to all members.
C. Fifty percent of the total membership shall constitute a quorum
for all regular and special membership meetings.
i
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SOCtien 10. Couuuf sn
..ton t.'xecut•!ve ltoord Fleetinga:
A. Plle Commission Executive Board shall meet at least once a month.
Be A majority of the Commission's vxorutivo Board constitutes
a
quorum.
C- Special meetings may be called by the Chairman of the Executive `
Board upon the written request of one-third of the members of the
Commission F.xccutivo Board, or upon his/her own initiative.
' Section 11. Negotiations (Executive Board):
A. The Executive Board of the Commission shall serve as the Negotiating
Committee for the Commission when necessary.
ARTICLE IV
RBSOUNCi;S
Section 2. Funds'
A. All expenditures up to $25.00 require approval of the Executive
Board. All expenditures over $25.00 req
uiro approval of:the
general membership.
Section 2- Records -- Financial records of this Commission must be
kept at least four (4) years. They must be audited
dent auditor. annually by an indopan-
Section 3. Technical assistance shall;be provided b
authority of the County Board of Supervisors. y the appointive
ARTICLE V
AHRNBNRNT
S
Section 1-
othe amendme
by.a nwjortty voteeProposed
off the nts) to these By-Laws may be originated
Co:vnission Executive 0oard or by a petition
signed by at least ten l,urcent of tho active :aem:ers.
Sectien 2. Thu Commission F.'xecutive Board shall
such prepused amendments provide a copy of
(• ), along with the original':section(s) of these
By-Laws, to every active member of the Commission for review prior to voting.
Rection 3- Tho propos
ud amendmu'nt(s) shall be discussed and adopted
or rcj<+ctrd by a majority of thong mombers voting In s
writtL-n Lullot. pecial election by
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Section,1. Ratification -- Upon formal acceptance of those Dy-Laws `
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APPENDIX #2
REPORT OF THE LEGISLATIVE TASK FORCE:
ANALYSIS AND RECOMMENDATIONS -
ON THE ALLIED SERVICES ACT OF 1972
The Legislative Task Force has carefully assessed the intent,
written and implicit provisions, and potential 'impact of the 2972 draft
of the Allied Services Act. Our objective was to identify provisions of
the Act which appeared contrary or unsupportive of the goals of the Act,
to make recommendations to resolve these issues, and to include additional
provisions to improve the-.iMpact of the legislation and 'its operation.
Although our analysis included many minor revisions in wording
In order to reflect an emphasis or clarity consistent with the views of
the Task Force -- the material that follows covers only our most important
concerns. We have attached a* -copy of the proposed by-laws of the Allied
Services Commission, whose principlesare recommended under item 2, (a) of
this report. We emphasize that this is a working draft of the by-laws and
that modifications and refinements are currently being Made.
1. We generally concur with the "Findings and Declaration of Purpose"
section, except on one issue. Whereas the Act is critical of the absence
within the states and communities of a single locus of accountability
for the effective provision of services, we feel that a single locus
is not as important as having clearly defined locations of responsibility
that are readily apparent and accessible to members of the community,
especially to the consumers of those services.
2. The Act designates three levels of authority in relation to the approval
and operation of an Allied Services Program. They are: (2) the local
agency designated to develop and implement a plan, (2) the governor who
Is responsible for supervising the local plans and developing the state
plan, and (3) the Secretary of HEW, who has ultimate authority in approving
state plans, consolidating funding, granting waivers,' and approving grants
for administrative costs. This administrative structure is the major
concern of t1le Legislative Task Force, whose adamant and unanimous recom-
mendation is the inclusion of two related provisions.
We feel that the Act must be revised to provide for community participa-
tion at all levels, and that the single locus of authority invested In
the governor and the Secretary of HEW should be shar6d with the citizenry
and also the legislature with xespec*t to the governor. Vhese two principles
guided the development of the following suggested organizational structure.'
We recognize that refinements and/or modifications are needed but have
Included these ideas to emphasize and clarify our intent.
C; 2
(a) The Act must mandate citizen (consumer) participation in the
developm ent, approval, operation, and evaluation of the local and
state Allied Services programs. We suggest the following organiza-
tional plan to accomplish this. (The citizen participation com-
missions, described below, are identified by governmental juris-
diction (city and county) for clarity only. The designated office
or agency may be one or more entities or a public or nonprofit
private agency.)
At the local (city) level -- confined to the particular Allied
Services Program area -- is the local citizens participation commis-
sion, composed of community organization representatives, members
at large, and agency representatives. This commission operates
under the authority and the direction of the regional (countywide)
planning commission but.is also responsive to the local offices,
agencies, or governmental jurisdictions (cities) that participate
in or administer the local programs.
The principles of selection, responsibilities, and authority of
the local citizens participation commission are contained in the
attached by-laws submitted by the By-Laws Committee on June 19,
1973, to the Allied Services Commission. These principles should
be used as operational regulations by federal and state governments
to provide a definitive structure to the requirements for citizen
participation at the local level.
The regional (countywide) commission operates under the authority
of the office, agency, or governmental jurisdiction appropriate to
the boundaries of the distinct area defined by the state for the
administration of the local Allied Services plans. This regional
(countywide) commission is composed of representative members of
local (city) citizen participation commissions and are selected by
these local commissions.
Based on this county's experience with the Allied Services Project,
we feel that the most viable regional jurisdiction is the county,
under the auspices of the Board of Supervisors. We recognize that
this arrangement may not be feasible in other areas and concur With
the flexibility of the Act, with the stipulation that the local,
• regional, and state offices or agencies be multipurpose in the scope
of their services.
The local (city) and regional (county) commissions shall maintain
and direct the activities of a citizens participation staff who will
serve to effectuate two-way communication between the community
and governmental structures. Their purpose in facilitating commu-
nication is to insure that the planning and operation of Allied
Services plans meet the intended goals and objectives of the Act
as they relate to community participation.
qn,
,
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3
The Act invests sole authority at the state level in the
governor or his designated state agency. This responsibility
and authority should be distributed to effect a balance between the
executive and legislative branches of state government and provide
for community participation. The following suggestion is intended
to meet this criticism.
The Act states that the governor has authority to: divide the state
into districts, determine inclusion of local plans into the state
plan, designate local agencies to plan and implement programs,
supervise local plans, and develop the state plan. Except for
technical, but very broad, provisions, his decisions are not constrained
by criteria relevant to the purpose of the Allied Services Act nor
to the needs and concerns of the consumer. The sharing of responsi-
bility and authority with the state legislature is operationalized
by the establishment of a state citizens participation commission
which will act under the policies and authorities of the legislature
and will function in its behalf by sharing equal authority with the
governor on those provisions of the Allied Services Act which are
currently (1972 draft) designated as his responsibility. The members
of the state commission will be members of the regional commissions
who are elected by their respective communities to serve at the
state level.
- (c) At the federal level, the Secretary of HEN has ultimate authority
for the approval, operation, and evaluation of the state plans. As
in the arguments above, this is again a single concentration of
authority with limited input from the communities and citizens to
be served. The recommendation to partially resolve our objection
is Indicated under item #3 below.
3 The Act states (under Title XX, Section 201, (a), (2)) that the governor
Is required to divide the state into distinct areas for the purpose of
administering local- Allied Services plans. The governor is required to
inform the unit or units of general purpose local government and afford
them a reasonable opportunity to comment upon these plans 6r to make recom-
mendations for alternatives to those plans. We feel that this concept
should be expanded and applied in two additional areas.
The expansion of this provision is to Include direct notification of and
the opportunity to comment by the local (city) and regional (county)
Allied Services commissions. If the issue is the division of the state
Into distinct areas (which will occur before the commissions are formed),
then the governor will be required to announce publicly (through news
4
media) the proposed boundaries and require that the unit of general
purpose local government, office, or agency hold public hearings to
provide for community input into the local response to the governor.
The first additional application of this concept is to require that .the
state provide similar notification and opportunities for comment by the
local agencies and citizens commissions when questions or objections
arise in their plans as submieted ,to the state. secondly, that the
Secretarg of NEW similarly hatify the*st;ite and the statewide citizens
commission of questions or objections to the state plan. Following the
notification, which should occur prior to the final action to disapprove
a plan or part of a plan, the state or Secretary will be required to
consider the comments and recommendations received.
4 *The Act (Title X, Section 202, "Evaluation and Technical 'Assistance")
states that the Secretary of HEW may conduct evaluations of the state
and local programs*' The Act should contain the provision that the criteria
for these assessments be established with the participation of the admini-
stering agency and citizens participation commission in order to assure
that the results of the evaluation are valid In relation to the goals,
objectives, and methods of the particular program in question; The
results of the evaluations should (rather than "may") be disseminated
to the local and state agencies and local and state citizens commissions.
S. On the subject of local agencies, the Act states (Title IX, Section 201,
(b)) that nonprofit, private agencies can only be selected for the admi-
nistration of the local plan If the governor finds that no office or
agency designated by the chief elected officials of general purpose local
government have the capacity to carry out 6 local Allied Services plan.
This appears too limiting and the criteria for choosing a public or non-
profit private agency should be expanded. Also, it appears (but is rJot
clear) that the public or nonprofit agency would be under the direction
of the state agency should it be designated as the local agency to plan
and implement the Allied Services plan. *This will need further clarifica-
tion.
6. The Act (Title XX, Section 203, (b) , (3)) excludes from funds which can
be transferred grants to states available under Titles I, X, XIV, XVI,
or XXX, or Part A- of the Title XV of the Social Security Act. These
references probably refer to the assistance grants .(welfare payments)
for the cetegorical aid programs which should be excluded. However, It
must be clear that the Social Service funds authorized for service programs
under these titles can be transferred and that under certain conditions
Title XXX Medical funds can be transferred.
7. Waiver of federal requirements can be granted by the Secretary in the
areas of statewideness, that single or specified agencies administer
particular programs, and technical or administrative requirements. The
latter should be expanded to specifically state that eligibility requirements
of particular programs and documentation of such eligibility can be made
uniform by waivers of individual program requirements.
The Act should also encourage local Ad state governments to grant
waivers of local and state requirements in order to 'accommodate the
development and operation of the local and state Allied Services plans.
8. Regarding the subject of special grants for administrative costs, the
Secretary is authorized to make grants to states for planning, preparing,
or administering coordinated services or Allied Services plans. However,
According to the Act as It is written, the requirements for these special
grants can only be met after the local and state plans have been developed
and are in effect. . Funds to meet start-up costs should be made available
to the state and local agencies as soon as they Initiate the development
of a plan by establishing local and statewide citizen participation
commissions.
The above conclusions and recommendations have been unanimously adopted by
the Legislative Task Force of the Allied Services Project and are respect-
fully submitted to the Commission with the following recommendations: (1)
that they be accepted and forwarded to the Allied Services Project Administra-
tion and the Allied Services Board; (2) that they be included in the Feasibi-
lity Study Design of the Pre-Test; (3) that they be forwarded to the federal
Office of Management and Budget for their consideration in revising the 1972
draft of the Allied Services Act; (4) we further recommend that the Allied
Services Project and all participating agencies and community organizations
urge the director of the Office of Management and Budget and the Secretary
of HEW to complete their work on the proposed Act in order for the President
to resubmit it to Congress during the next legislative session.
Respectfully submitted by
Ethel Dotson, Chairperson
Kagey Dorosz, Vice-Chairperson
1 Manuel Estrada
Robert Clark
Mary Blackburn
Maxine Eason
Warrington Stokes
Tam Morioka
Attachment. Proposed by-laws
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ITO
V4,
Human Resod. Zes Agency APPENDIX
#3
Data January 30, 1974 CONTRA COSTA COUNTY
To Legislative Task Force, Allied Services Project: Ethel Dotson, Manuel Estrada,
*r Kagey Dorosz, Bokes.,
ark, Mary Blackburn, Tom Morioka, Maxine Eason
FrOM Warrington St Chief, Social Program Planning and Development Division i
Subj ADMINISTRATIVE AND LEGISLATIVE CONSTRAINTS STUDY
The following is my suggestion as to an appropriate-response to the recent
request from the Deputy Assistant Secretary for Program Systems, Department
of Health Education and Welfare for comments concerning administrative and
legislative constraints which impede strengthening the management of human
resource programs. After the Legislative Task Force has had an opportunity
to review, respond and add material, the items can be put on the form pro-
vided by HEW. I am also attaching for your information an earlier letter
in response to a request from the Assistant Regional Director for Inter-
governmental Affairs, HEW, for comments on "capacity building" strategy.
The major impediment to developing human resource programs is the lack of
clearly stated goals and objectives to guide Federal, State and local
legislators and administrators in the development of a comprehensive human
service system.
The lack 'of such goals is reflected in appropriations which are insufficient
to the demonstrated need, may be channeled through inappropriate agencies,
and are unpredictable as to their continuity. An example is the allocation
of the Social Service funds to the States on a strictly per capita basis
without regard to either the magnitude of need or the level of services
which have been developed in the various States. The Federal government
should establish a minimum level of service which would be required of
the States and on the basis of available cost data,allocate the necessary
funds.
Block funding or "revenue sharing" may provide greater flexibility at the
local level; however unless there is a clear mandate in the Federal law or
regulations, human services may suffer in competition with other local
needs.
In California and most other Western states, responsibility for the provision
of basic health and welfare services is assigned to the counties. Education
services are provided by autonomous school districts with their own taxing
authority. Municipalities usually provide recreation services and possibly
housing. If block grants are allocated municipalities on the assumption that
they will be used for basic health and welfare'services, problems may result.
_z_
The lack of clearly stated goals is reflected also in the regulations governing
the nature of the services which may be offered and the persons who are
eligible for them. The regulations proposed by HEW and currently suspended
by Congressional action would substantially.reduce the number of services which
we would be able to provide and would eliminate many "potential" eligible
persons who are in genuine need. Further, the restriction of services to
individuals who are "current" recipients of cash payments makes it difficult
to integrate our services with police, school and health agencies which do not
' have similar restrictions.
Without clearly defined requirements for consumer and community participation
' in the development of local programs, there is no guarantee that programs will ,
be relevant and responsive to local need.
WS:b11
Attachment
' cc: Judy Miller, Allied Services Project Director
Don Enderton, Legislative Liaison, Human Resources Agency
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+ r=IVUIJt #4
CONTRA COSTA COUNTY
' HUMAN RESOURCES AGENCY R. E. JORNLIN. DIRECTOR
SOCIAL SERVICE DEPARTMENT C. L. VAN MARTER
ADMINISTRATIV[OFFIC[
DIRECTOR
3401 STANW[LL DRIV[*200
CONCORO. CALIF. 94930
795.1500
' June 10, 1974
Supervisor James P. Kenny
' Supervisor Warren Boggess
Human Resources Committee
Board of Supervisors
Contra Costa County
' 651 Pine Street
Martinez, CA 94553
Dear Supervisor Kenny and Supervisor Boggess:
In a letter dated 10/18/73 addressed to each member of the Board, the Legislative
Task Force of the Allied Services Project introduced it and explained its purpose.
As we described, one of our major concerns has been consumer protection. Our
efforts in this area have focussed on the issue of the confidentiality of
' client/patient information kept in agency records. We have been charged by the
Allied Services Commission with the responsibility of evaluating the safeguards
for confidentiality in the Human Resources Agency's plans for a computerized
' information system. On 6/6/74, we received the detailed and complete plans for
the Human Resources System and have just begun to review them.
' However, you have received a proposal from the Human Resources Agency which
requests authorization to allocate $700,000 and approval to implement the Human
Resources System. We understand that this proposal was submitted to you in a
ten-page memorandum. We have recently asked for a copy of this memo and have
not received it yet.
We request that you postpone making a decision until the Human Resources System
plan and the proposal submitted to you can be thoroughly evaluated in terms of
the safeguards to the client/patient's rights to confidentiality. There is a
policy statement on confidentiality for use with the Human Resources System which
was developed and approved by agency personnel--without consumer participation.
This material was sent to some community groups for review, and we feel strongly
that no action or decision should be made on the proposed plan until all responses
to the confidentiality statement are received.
' Additionally, we are concerned because the final approval of those policies on
confidentiality were approved by the Confidentiality Board which lacks consumer
' (community or client/patient) participation. We recommend that there be consumer
f
Supervisor James P: Kenny
Supervisor Warren Boggess
2 June 10, 1974
participation p on in the final approval of the confidentialit
there should be consumer participation in the on oin Y policies, and that
as the Human. Resources System is implemented, g g functions of that board
In closing, we emphasize our request and urge you to postpone taking on the Human Resources System proposal until there is as
and community groups have participated in the evaluationing any action ,
effect, on the client/patient's right to confidenity.assurance that
Very truly confidentiality.
Yours,
or. Mary Blackburn, Chai
Legislative Task Force, Aln
liedServices Project
MB.TM:ga
cc: A. Croutch
Judy Miller
Nyman Wong
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APPENDIX #5
CONTRA COSTA COUNTY
1HUMAh RILSOURCES AGENCY R. E. JORNLIN, VIRECT011
C, L. VAN MARTrit
SOVAL srnvicE PEPARIMCNT VIUMTOR
Ar%tAo4isiF%ta#vr. orrtcr
t401 !.TA?4WrL1. PrIVE V200
CONCOMP. CAtJr, 94520
798.1000
July 10, 1974
Robert E. Jornlin, Director
Human Resources Agency
Contra Costa County
651 Pine Street
Martinez, California 94553
Dear Mr. Jornlin:
Thank you for meeting with the Legislative Task Force of the Allied Services
Project (on such short notice) and hearing our concerns regarding the Human
Resources System and related issues of client/patient confldentiality. As
we' explained, we are putting our comments in writing for transmittal to you
and, members of the Board of Supervisors. We also provided input for your
testimony on the Allied Services Act (see the footnote on the last page).
The following expresses our major concerns with the proposed computerized
information system, as known to us through information provided by you and
your staff. As with our last meeting with Mr. Croutch, the material needed
for specific reference was only provided at the time of the meeting, prohibit-
ing prior study. Vie have, however, reviewed your memo to Supervisor Kenny
and Supervisor Boggess (dated 5/5/74) and have included our response to
that memo in this letter.
We note that in your May 5th memo reference .is made to one or two additional
pieces of material . One is a report to you of the Oklahoma system by your
staff and the Data Processing Manager. The other is described as an "assess-
ment" memo which apparently details the cost of installing the Human Resources
System. We request copies of this material and/or other information that
relates to our concerns and questions expressed below. At our meeting with
you, we requested--and you agreed to provide--cost information on the sources
and amounts of funding and specific detail on the expenses for impletnentill!)
the human Resources system. We would like that data by July 19, 1974.
Generally, we agree with and support your stated goal of improving services
to clients by increasing the effectiveriess and efficiency of current agency
operations. Our participation in the Allied Services Project demonstrates
our commitment toward the potential for enhancing tile quality of services
by their integration. We also acknowledge the need for analytical data in
order to support program efforts and plan the delivery of services.
However, we are not convinced that a compute'rized information system will
support these goals. We are concerned that the computerized system is
viewed as an end in itself, rather than one of many tools for providing
effective human services, and that its utilization should be based on
comprehensive and detailed program planning rather than using the coinputur
to solve public policy and prograin issues.
ViNK
Robert E. Jornlin July 10, 1974
We are concerned that the Human Resource.,, System is not designed to lileet--nor
is any consideration given to--the 'needs of non-English speaking persons. Ne
to the large number of non-English speaking clients/patients served by this
system, special provisions should be made to insure that their needs are met.
We are concerned that the financial and staff-time costs may divert the
limited resources of the County away from pressing and urgent human service
needs. Approximately $1 ,000,000 per year is proposed t o be committed without
resolution of public policy issues involved, including the service priorities
of the Human Resources Agency and the County. Plans are being developed with
little or no involvement of consumers (client/patient) or the community at large.
We are concerned that the Human Resources System is being proposed and, with
potential Board of Supervisors approval , will be implei-c.ented in a political
and administrative climate full of potential dangers that may negatively affect
service delivery and seriously threaten individual privacy.
The Legislative Task Force has specifically addressed itself to the Consumer
Protection issue of the client/patient's right to confidentiality. From our
general concerns expressed above, we have detailed our specific objections
to the Human Resources System and the confidentiality policies.
As we indicated in our correspondence with Mr. Al Croutch, we object to the
fact that the confidentiality policies were developed with a minimum amount
of community input and no consumer involvement. The final approval of those
policies was given to the Confidentiality Boara, consisting only of Depart-
ment Heads, none of villom are directly responsible to the general citizenry
nor easily accessible to the consumer population. We repeat our recommenda-
tion that the confidentiality policies be approved by a body consisting of
consumer and community participants. We further recommend that an ongoing
Confidentiality Board, be established which would include consumer and community
..representation to monitor the implementation of the Human Resources System and
related issues.
We object to the fact that the substantive content of the confidentiality
material , the listing of data elements and confidentiality codes, were compila-
tions of existing practices, rather than carefully analyzed legal provisions,
regulations and/or validated legal interpretations. Most of the client/p6tiont
information is coded "B" which represents information which can be shared "in
an appropriate manner beneficial to the client". This criteria for the release
of significant personal information is at best vague, and subject to gross
variations in interpretation with little assurance to the consumer that his
best interest is being served. lie believe that failure to determine the
legal implications of install ing. such a system may leave the County vulnerable
to litigation.
Although the proposed system provides for the client's permission to store
information in tile computer (a time-consuming process) there is no mechaninm
for the later review of all the data stored in the computer about him. I'tiruiol-,
there is no considetation (no confidentiality codd) for the elew.ents which can
be released with the client's signed authorization. Both of these issues ne(.�jtl
to demonstrate that the Human Resources System ignores recognition of the
client's participation in the delivery of service and involvement in the 111 f'o 1,
"oration sharing process. ,
_Nw
Robert E. Jornlin -3- July 10, 1974
i
' In addition, the confidentiality material does not establish a code or con-
trol on third party information from a confidential source. An example of
this is a psychiatric evaluation report sent to the /Agency from a source
who indicates that the material cannot be shared.
As we indicated above, we recognize the need for analytical data in order to
support program funding and conduct needed surveys. However, vie object to
' the fact that the name of an individual client is attached to the data.
Client/patient data can be computerized and analyzed without the individual
name; or a statistically valid sampling (anonymous) can be used to obtain
reliable information to meet management purposes. The only need for identify-
ing the individual data is for the Multi-Service CotivRit:tee lviho reviews clients
served by more than one agency. Phis function duplicates the existing efforts
of direct service workers and is unnecessary. The wealth of assorted items
,. of inforn;ation that are collected and stored are also a, duplication of the
direct services workers' case record.
' In sunviary, the Human Resources System collects, stores, and shares an
excessive amount of personal information without overall planning for its
use and sharing based on validly established safeguards for the client's/patient's
right to confidentiality. Vie urge you to delay implementation of the Human
Resources System until :
1 . There is an overall plan for the process of delivering human
services in this county which address qualitative as well as
quantitative factors;
' 2. The computerized system can be developed to support the delivery,
processes$
3. Specific informational needs of the Federal , State, and local
governments are identified; .
4. The issues of confidentiality are resolved and there is consumer
' and community participation in the confidentiality policies;
5. Priorities can be established to determine the amount of resources
to be alloca,t.ed to specific programs; .
6. Specific procedures-of the data collection, storage, and sharing
system are pretested by manual operation and their effectiveness
and efficiency evaluated; and
7. The plan addresses the needs of the non-English speaking community.
As lie understand from your explanation, the ituitlan Resources Committee of
the Board of Supervisors forwarded your proposal to tale Administration and
Finance Committee without a reconxiienda ti oii, and that the Administration
and Finance Committee will fully revievi and evaluate the content of the
Human Resources System material . Vie strongly feel that we and other
�3-h ,, . f.rt<+ „ a-.s .. ;� .,,.... ,.., .an ... ,._ .. .r- .r, ;.a _. a, +. =f __ .. .�. ..,h,�• P'?.a?a v „"t jq uc?C"k^�w.:� �=s. +tee{ret�e��i��'h,
Robert i:. J ,
Y ornl i n -4-
July 10, 1974
community and consumer groups should have an opportunity to directly
present our concerns to tile►►►. tic ask that you support our request for
' a delay in any Board action until such a hearing is completed.
We regret that we were not able to express our concerns to the iium��n
Resources Committee I)Cfore tine pt•criaosal lift them. As we indicated in
our June 28th letter, we felt that tine Human Resources Committee should
have input prior to any decision.
Yours truly,
0r. Mary Blackburn, Chairperson
Legislative Task Force +
Allied Service Project {
MB:T14:fb
cc: Supervisor Alfred M. pia
Supervisor Edmund A. Linscheid
Supervisor James P. Kenny
Supervisor Warren N. Boggess
Al Croutch
Hyman Wong
Judy Miller
NOTE: On a related subject, the
summarize here our comments provided last
week for your information in testifying on the most recent draft of
tttie Allied Services Act. As we expressed in our meeting and in-our
written statement,' our view is that the 1972 draft of the Allied
Services Act was deficient. The current proposed legislation must
require consumer participation in the
and evaluation of Allied Services Programs1oWe►malsagrecommendothat
' you stress in your testimony the need for affirmative action in the
staffing of Allied Services Projects. :
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APPENDIX #6
September 17, 1974
TO: Members of the Contra Costa County Allied Services
Commission
FROM: The Joint Monitoring Team (Legislative Task Force -
Substance Abuse)
SUBJECT: Status Report
I. HISTORY AND PROCESS
This introductory statement will briefly describe the history
and process of the Joint Monitoring Team as it evaluated the Infor-
mation Exchange Feasibility Team activities, confidentiality state-
ments, and implementation plans.
In April, 1974 the Legislative Task Force was asked to monitor
the Information Exchange Feasibility Team. When the Legislative Task
Force first reviewed the "Overview" statement, which was to guide
the Feasibility Team, it questioned the validity and found several
inconsistencies between the Recommendation and the Intent.
A meeting was set up between the Legislative Task Force, Sub-
stance Abuse Task Force and Allied Services Project staff. The
results of this and a subsequent meeting were: (1) clarification
of the Project procedures, (2) the formation of the Joint Monitoring
Team which included the Substance Abuse Task Force and Legislative
Task Force, (3) clarification ,pf the Substance Abuse Recommendation
on confidentiality and the exchange g of information, (4) rewriting
' of the Task Force Intent (previously written by Project staff) to
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conform with the recommendation written by the Substance Abuse Task
Force, and (5) the decision that a member of the Joint Monitoring Team
would attend the meetings of the Feasibility Team.
The monitoring process began on May 14, 1974 with the first pro-
gress report by the chairman of the Feasibility Team. The second
' progress report came on June 11, 1974. The evaluative comments are
contained in a summary at the end of this introduction.
With a member of the Joint Monitoring Team attending the Feasi-
bility Team working sessions, it was determined that the Feasbility
Team activities did not conform with the revised Intent for the
Substance Abuse Task Force recommendation. A joint Monitoring Team
meeting was called on July 9th to discuss the apparent misdirection
Iof the Feasibility Team. Its Vice-chairman reported that the Feasi-
bility Team had not been given the revised Intent statement. The
Intent was written out in this meeting and copies were distributed.
' The Joint Monitoring Team received the Information Exchange and
confidentiality outlines in late August and some of the Implementa-
tion plans in early September. It has had 4 meetings since September
3rd (a total of about 16 hours) in which the material was reviewed
and seven Feasibility team members were interviewed (all except Social
Security).
To conclude this introduction, the four issues that developed
during the monitoring process are summarized as follows;
A. The Feasibility Team Intent was rewritten to conform with the
Substance Abuse Task Force Recommendation. This was resolved at the
persistence of the Monitoring Team, but there was a delay because
the Feasibility Team did not receive the revision until July.
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B. The Monitoring Team did not receive the final material from
the Feasibility Team until late August and all of the implementation
_ Plans have not been submitted.
C. The Task Force Intent requires client/patient participation
in the development of the Information Exchange material. Although a
member of the Monitoring Team did attend the Feasibility Team meetings,
this did not meet the stated intent.
D. The Feasibility Team attempted to meet the Monitoring Team's
expectation that the laws governing the confidentiality policies be
' included in the Information Exchange material. Exceptions are noted
in the detailed evaluation that follows.
II. INFORMATION EXCHANGE FEASIBILITY TEAM (IMPLEMENTATION PROGRAMS)
In reviewing item II-B, ("Administration/Management") page three
of the Implementation Program, the Monitoring Team concluded that the
manner in which the success of the program is to be evaluated is not
described nor is the composition of the monitoring group specified.
The role that the Joint Monitoring Team (Substance Abuse and Legisla-
tive Task Forces) and the Information Exchange Feasibility Team will
play in the monitoring process should be clearly defined. There is
' also some question as to the validity of having the Feasibility Team
being its own monitor. There is also some concern about the time
frame of the follow-up process. It is desirable that this follow-up
take place sooner than the three to six months suggested.
It is recommended that these issues be resolved before the
implementation of any of the individual plans be initiated, and that
the Feasibility Team rewrite and resubmit this section of the plan,
taking the above issues under consideration.
Of the eight participating agencies, only four submitted Imple-
mentation Plans describing how the Information Exchange material will
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be used in their agency. Our comments and recommendations for these
agencies are as follows:
• A. HEALTH DEPARTMENT
The implementation plan indicates that the Nursing Division
will apprise the staff of the Health Department of the purpose, history,
and philosophy of the implementation plan. It was unclear if other
divisions such as Veneral Disease Control and Sanitation will partici-
pate actively in the program. If there are other Divisions participating
it would be necessary to consider the kind of information being shared
by these departments and how the sharing takes place. We support the
idea of including the Information Exchange material in the Health
' Department's operational manual.
4 After a thorough review of the present practices of information
exchange, it was evident that there is an attempt at preserving the
clients rights to confidentiality. However, we do have some reservation
concerning the following areas: (1) their release of information form
iallows that "any" information can be disclosed, where as the specifics
should be cited; (2) the ease of access between the Health Department
and Medical Services does not require that the purpose for the infor-
mation exchange be sited; (3) the address of patients is given for
identification purposes; (4) in a court supeona of records, the "public
interest" is not defined; and (5) several items of the materials are
marked "N/A" for not applicable, these should be deleted or a policy
established.
The Joint Monitoring Team recommends that the Commission allow
ample time for the questions and reservations to be answered. Then
the Health Department's plan should then be submitted for action by
the Commission.
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B. RICMOND PROBATION DEPARTMENT
There is no set policy on how information is "secured" once
J it is in the files of the Probation Department. It is generally
assumed that information may be shared between agencies without release.
The present practice of information exchange may vary in some divisions.
A case by case determination in some divisions is made of whether or
not there is a "mutual relationship" between the agency requesting
the information. However, there is no set policy on how to interpret
"mutual relationship" nor is there any general in-service training of
staff on how to make these decisions. Even though a consent form is
available, it is not considered official.
The plan as it is written does not clarify whether the Training
Officer is a special position, nor does it describe what the routine
duties are. The role of the unit supervisors in the in services training
process are not defined. The Monitoring Team recommends that no action
be taken on this plan until these issues are clarified.
C. RICHMOND POLICE DEPARTMENT
The implementation plan submitted for the Police Department
does not indicate if the implementation packets will be distributed
to all divisions; only the Detective Division was designated. It does
not state who will be responsible for explaining the history and purpose
of the plan during line up. There was no policy nor practice describing
the present manner in which information is exchanged to show how infor-
mation given to other agencies is made "secure" once it is a part of
the files of that other Department.
'5
3
In addition to the above, departmental orders relating to the
release of information will not be available for at least another month;
nor has the law '(code) governing the confidential clause been made
available for review. The Monitoring Team recommends that the Commis-
sion allow time for the issues raised in this report to be resolved by
the Policy Department, at which time the plan may be resubmitted for
action by the Commission.
D. SOCIAL SECURITY ADMINISTRATION
This agency has submitted a plan for implementation, but has
not met with the Monitoring Team to discuss their present information
sharing policies and practices. The plan as it is written does not
indicate who has the responsibility for staff training with respect
to the implementation program. It is not made clear what the plan
with Contra Costa County Welfare Department entails.
The Monitoring Team recommends that no consideration be given
to this plan until at such time when the above questions are answered
and the Team will have had the opportunity to review the information
sharing practices with a representative from that agency.
III. DEPARTMENTS WITHOUT IMPLEMENTATION PLANS
The following agencies have not submitted implementation plans:
A. CONTRA COSTA COUNTY MEDICAL SERVICES
Present plans have been discussed with representatives from
` Contra Costa County Mental Health and Medical Services. There are
numerous questions regarding the present practices which need to be
clarified. Some of them include: (1) what procedures are used to
confirm who is making a request by phone; (2) what are the procedures
for handling records in alcohol Detox out-patient facilities, and (3)
in Methodone programs.
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There is considerable concern about how and when the blanket
' release of information form is used. It was not known if there was
' a policy regulation for its use. A more specific release form is
needed to prevent the implication that a person "has been receiving
' mental health treatment" because of the rejection of the general
request for release of information.
The rational behind the mutual sharing of Medical Services
and Mental Health records with the Health Department with no burden
of proof as to why the information is needed should be set forth.
' There is a grave breach in the client's rights to confidentiality
caused by a present practice that "the appointment desk may give out
information as to whether or not a client did or did not make a clinic
visit.
' The Monitoring Team recommends that at such time when a plan
' is submitted, it will reflect an attempt to resolve these questions
and concerns.
' B. SOCIAL SERVICES
Several major questions and concerns were raised with regard
' to the accuracy and consistency of the Information Exchange material
' from the Social Service Department. It appears that many factors
prevent the Feasibility Team from developing a clear and specific
' statement of the Social Service Departments policies and practices.
These include: (1) the vague laws; (2) the absence of written depart-
ment policy; and (3) the reorganization, size and variations in functions
' and locations of staff.
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In our interview with the Social Service Department representa-
tive, the previously submitted material was withdrawn from consideration
when it appeared that no refinement of it was possible without the _
Social Service Department's actions to define its own policies and con-
trol its practices. In its place a preliminary statement will be sub-
mitted which will state who in the Department is responsible for the
confidentiality of its records, a copy of the legal references that
govern the Department's confidentiality, and a commitment by the
Department to clarify and define its policies and practices before
these are exchanged in accordance with' the Substance Abuse recommenda-
tion and intent. The commitment by the Department will first require
administrative approval.
Contingent upon the administrative approval of the Social
Service Department statement, the Joint Monitoring Team recommends
that the Commission approve of the actions by the Social Service Depart-
ment and continue the Feasibility Team and Monitoring Team operations
so that the progress and product of the Feasibility Team be resubmitted
as refinements are made. We feel that the honest acknowledgement of a
deficiency and committment to correct it is a positive and constructive
step toward the improvement of services to clients and the integrity
of the department.
C. RICHMOND UNIFIED SCHOOL DISTRICT
The present practices for information exchange have been
reviewed with a representative of the agency. However, further study
of the State Education Code is necessary to clarify some of the ques-
tions raised with respect to who may receive information from the
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agency; the kind of information that is shared; and what the parent's
and student's rights are.
The Monitoring Team recommends that time be allowed for
•
further study of these issues before consideration is given to any
implementation plan which is submitted.
IV. CONCLUSION
The Joint Monitoring Team acknowledges the hard work of the
Feasibility Team and its individual members on this most difficult and
' complex task of outlining the confidentiality policies and practices
of their agencies. We have observed that the agencies vary greatly
in the development of clear and specific policies and their implemen-
tation and training for consistent practices which protect the con-
fidentiality of the client/patient.
We feel that the work of the Feasibility Team members and the
monitoring process have contributed significantly to the development
' of a systematic basis for the exchange of client/patient information
among agencies that will be more efficient for the agencies involved
and, at the same time, insure the confidentiality of .the information
being exchanged. Both of these objectives will facilitate the inte-
gration and coordination of services for the ultimate goal of improving
services to the client/patient.
This report to the Commission represents the current status of
our monitoring responsibilities. We recommend that it be adopted as
a status report with a committment to support our continuing efforts
to work with the Feasibility Team to refine the Information Exchange
materials.
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Depar•tr:et►t APPENDIX #7
Person Interviewed ~
i• What are the major objectives of the department?
2• What major service areas are encompassed?
' 3• What administrative jurisdiction docs the departmant operate urzderl t
4• What is the level of funding for the department th
(a) Sources of the funds? is fiscal year?
(b) Restrictions on the use of these funds?
(c) Adequacy of these funds?
5• Level of staffing?
9
(a) Restrictions on flexible use of professional s
• (b) What are commonly acceptedtaff?
staff standards? Do you meet them?
(c) Procedure for setting program priorities and
' 6• Specific services staffing accordingly?
.provided?
(a) Adequacy based on consumer needs?
(b) Accessibility to clients?
(c) Overlapping and gaps?
7• Community participation?
(a) P.blicY'makin9
• (b) Confidentiality
(c) Client
grievances
8• Proposed legislative changes for service enhance
(a) Federal meet?
(b) State
9• Levels of regulatory obstacles?
(e) Federal
(b) State
(c) local (county, city, special districts)
' )0. Central information system?
(a) Usefulness
(b) Kind of input and expected output?
(c) - Concerns ;?
(d) Suggestions for consume r..participation?
. : (e) Mature.of comm
unity participation? -
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In the Board of Supervisors
of
Contra Costa County, State of California
March 25 19
In the Matter of
Authorizing Submission of
Contra Costa County Allied
Services Project Case Study
to National Association of
Counties.
Mr. Robert E. Jornlin, Director, Human Resources Agency,
having this day appeared before the Board and advised that the
National Association of Counties has invited Contra Costa County
to submit a case study of its Allied Services Project for
consideration of a NACo Achievement Award;
NOW, THEREFORE, on motion of Supervisor E. A. Linscheid,
seconded by Supervisor W. N. Boggess, IT IS BY THE BOARD ORDERED
that Mr. Jornlin is hereby AUTHORIZED to submit aforesaid case
study to the National Association of Counties.
The foregoing order was passed by the following vote:
AYES: Supervisors J. P. Kenny, A. M. Dias,
W. N. Boggess, E. A. Linscheid,
J. E. Moriarty.
NOES: None.
ABSENT: None.
{ I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
Witness my hand and the Seat of the Board of
cc: Director, Human Resources Supervisors
Agency affixed this 25th day Of March 11974
Allied Services Project
Director JAMES R. OLSSON, County Clerk
County AdministratorBy op K`,�,,," Deputy Clerk
L. Kincaid
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April 2, 1974
Mr. Bernard F. Hillenbrand
Zceoutive Director
National Association Of Counties
1735 New York Avenue, :N. W.
t Washington, D C. 20406
Dear Mr. Hillenbrand
6'
On behalf of ,the Conbra Costa ,County Board of
Sups`rvisors, X risk. to sxtead our' bhanke U the .National
Absooletioa o! Couabies Research :Foundauion/Ails. d- Services
til'ee�a for abeir ,pisit sad .sub`soquent report ob.the. status
of Oontrw' Costa :Coupbl" 1n relation.:.00 survLaoa lategrabi,on.
Wr Pound the report -to be o! .•great:interest 'end ass, stagoe
o as in 'soviag toward services. intsgrabion. Ws' heartily
upporb ;-NACo.I s..off brte io this ares:'and Would hope : dor
oontimod� efrort 'oa tbs -part of NACo in supporting..and
providing inPorwatiot,"A aling withservices -integrati.oa.
�tipasr�ly.
Janos Moriarty
Cba rMan
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In the Board of Supervisors
of
Contra Costa County, State of California
March 25 1gtom..
In the Matter of
Allied Services Project in
Contra Costa County. J I .
Mr. R. E. Jornlin, Director, Human Resources Agency, having
presented to the Board this day a memorandum dated March 25, 1974
with respect to the visit of the National Association of Counties
Research Foundation/Allied Services Team and subsequent report on
the status of Contra Costa County in relation to services integration;
and
Mr. Jornlin having requested that the Chairman, on behalf
of the Board, be authorized to send a letter to Mr. Bernard
Hillenbrand, Executive Director, National Association of Counties,
extending appreciation for their efforts in .the area of services
integration; and
It having been noted that the Board had received a copy of
"Human Services Integration at the Community Level: A Six County
Report" from said Association; and
On motion of Supervisor E. A. Linscheid, seconded by Super-
visor W. N. Boggess, IT IS BY THE BOARD ORDERED that receipt of
aforesaid memorandum and report are ACKNOWLEDGED, and the request
of Mr. Jornlin is APPROVED.
The foregoing order was passed by the following vote: -
AYES: Supervisors J. P. Kenny, A. M. Dias,
W. N. Boggess, E. A. Linscheid, J. E. Moriarty.
NOES: None.
ABSENT: None.
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc : Director, Human Resources Witness my hand and the Seal of the Board of
Agency Supervisors
Allied Services affixed this_21ith day of March , 1974
County AdministPatorJAMES R. OLSUBy-� /1 • Deputy Clerk
Charleen K. Travers
a H 24 5/73—ISM
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CONTRA COSTA COUNTY
Dat : ;':t, t~h 25, 1974 _
20
TjOARD OF .SUPERVISORS RECEIVED
D
IAA 1974
Fz'Oiil R. D. Jor lin DirectorMQR
J. R. OtSSON
CLERK BOARD O,'• SUPERVISOM
Subs NACo REPORT ON CONTRA COSTA COUNTY CON COT CO.
A; the Board will recall, the National Association of Counties Research
Foundation -- Allied Services Project team visited Contra Costa County
last March 19 through 23, 1973, as part of a six-county study centering
around the development of a composite picture of each county and its
status in relation to implementation of Allied Se;vices program integra-
tion. During their visit, the NACo Allied Services team met with and
interviewed 35 persons, including representatives from the Board of Super-
visors, the Human Resources Agency, HEW -- regional office, the State
Intergovernmental Relations Office, the Richmond Police Department, the
Richmond Model Cities Program, the County Probation Department, and several
private services agencies.
Attached you will find a copy*of their report on Contra Costa County, as
vc.:l as their overall conclusions and recommendations. The entire six-
county report has been given to the County Administrator and is available
should the Board want to review the entire study. The report includes a
description of the general characteristics and governmental structure in
Contra Costa County and findings and recommendations. To highlight for
the Board, their findings are as follows:
(1) Status of Services Integration in Contra Costa County. w
Contra Costa County has maintained close working relationships between its
agencies and other public and private human services providers serving
County residents. The County has pioneered services integration at the
local level and can serve as a model for other counties' integration of
human services delivery systems.
(2) Intergovernmental Relations. Contra Costa County experiences
good-relations with the cities in the County. Members of the Board of Super-
visors, several of whom are former members of city councils, meet regularly
with the suburban mayors. The County Administrator, J. P. MaBrien, meets
monthly with the County Association of City Managers. Intergovernmental
contracts exist between the cities and .the County and serve to strengthen
these relationships. The team was impressed with the cooperative attitudes
between the city service providers and County human services agencies.
A
eam members never encountered the city-county hostility found in many
arGns in the country. Mutual respect and cooperation prevail. Territorial
co,i licts among the levels of government are at a minimum, due primarily to
Caiixornia's mechanism for human services delivery, which gives a clear
hzndate to the county for the administration and provision of major social
and health services. Considerable program innovation can be credited to
BOARD OF SUPERVISORS - 2 ,March. 25 t 19.74
this clear definition of responsibility. it also eliminates the friction
that frequently surrounds county-state relationships regarding services
delivery.
3. County and Private Sector Interaction.. The main interaction
between the County and the private sector is through purchase and service
contracts. These contracts involve both County and private financing,
including the Unified Bay Area Crusade (UBAC) funds used to manage federal
social service monies.
The involvement of the County in the formation of the Contra
Costa Coordinating Council demonstrates an early recognition of its role
as a leader in services integration.
4. Data Collection Capabilities. The computer center facilities
seem to be efficiently used but are small for a county of Contra Costa's
geographic size and population. Costing and evaluation services provided
by the department are excellent. No project is placed on the computer un-
less it has been thoroughly thought out and its cost estimated., The team
identified the need for a computer facility for the Human Resources Agency
that could respond to the needs of human service providers. However, they
.indicated that without adequate funding the County would be unable to install
such a system, and local integration efforts would be stymied.
5. Barriers and Bridges to Services Integration. While barriers
to services integration exist in most areas of the country, the degree is
relative. In Contra Costa County the problems are manageable and can be
overcome with improved communications and concentrated effort. Since the
Board of Supervisors is elected from a broad representative base and has
major responsibility under California law for public services delivery, the
County maintains good governmental authority. Having received the Board's `
endorsement, HRA is in a good position to design an areawide allied services
plan. A major bridge to the success of services integration is embodied in
Contra Costa's Allied Services Project, which includes the staff and other
resources available to focus on program planning and other implementations.
Although additional financial resources will be necessary to achieve
services integration, particularly for data collection and systems analysis,
the IMCORF team concluded that allied services will be implemented in Contra
Costa with comparatively little difficulty.
6. Recommendations. It was the unanimous recommendation of the
NACORF team that the County of Contra Costa, through its Human Resources
Agency, be designated the local prime sponsor under the Allied Services Act.
REJ:ask -
Attachment: NACo report on Contra Costa County
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human services integration
at the community � .
level:
a six county report
AL TEMPLETON
PROJECT DIRECTOR
JUDY BARRY
EDITOR
NANCY JO MERRILL
SECRETARY
t
a.
NOVEMBER, 1973
THE
THE NATIONAL.ASSOCIATION OF'COUNTIES RESEARCH FOUNDATION '
1735 New `,York Avenue N. Washington; D,C. 2000G
202.785.9577 }
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-72-
-~ V. CONTRA COSTA COUITTY, CALIFOMTIA
A. THE COUNTY: GENERAL CHARACTERISTICS AND GOVERIPIENTAL STRUCTURE
B. SELECTION AS A PROJECT SITE
C. MAJOR HUMAN SERVICES AGENCIES
1. Human Resources Agency
a. Health Services Department
b. Medical Services Department
C. Social Services Department
d. Rodeo Community Services Center
2. Federally Funded Programs.
a. Allied Services Project
b. Office of Economic Opportunity
c. Richmond Model Cities
3. Private Service Providers
D. NACORF TEAM VISIT
1. Pre-site Visit
2. Participants and Schedule
3.' Technical Assistance •
E. FINDINGS .
1. Status of Services Integration in Contra Costa County
a. Human Resources Agency
b. Multi-Service Center
c. Allied Services Project
2. intergovernmental Relations
a. County-City
b. County-State
c. County-Regional
d. County-Federal
3. County and Private Sector Interaction
_ 4. Data Collection Capabilities
5. Barriers and Bridges to Services Integration
F. RECOW4ENDATIONS
1, Prime Sponsor
2. Recommended Changes in the County to Implement Allied Services
Integration
3. Alternative Prime Sponsors
4. Service Providers and Integrated Planning
5. Technical Assistance
Suggested Amendments to the Allied Services Act
G. REFERENCES
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A. THE COUNTY: GENERAL CHARACTERISTICS AND GOVERIPMENTAL STRUCTURE
Although Contra Costa County is one of the smallest of California's. i
58 counties in land area, it ranks ninth in population. The county's
805.9 square miles---732.6 land, 73.3 water--has a population of approxi-
mately 594,800. It is part of a multi-county Standard Metropolitan
Statistical Area (SMSA), which includes the northern California counties
of Alameda, Contra Costa, Marin, San Francisco and San Mateo.
Originally, Contra Costa was an agricultural and shipping center
serving the San Francisco Bay Area. Since World War II, the county has
become heavily industrial. Major plants produce gasoline and petroleum
products, chemicals, steel, building materials, pulp and paper, electronics,
scientific instruments, sugar and food products. The commercial, industrial
and utility properties account for about one-half of the county's assessed
valuation of more than two billion dollars.
,Of the 469,760 acres in the county, approximately 309,339 are still
farm land. However, the impact of population growth_, totaling nearly 150,000
during the past ten years has resulted in some development of farm land for
housing. Although the rate of growth has tapered off during the past two to -
three years, the advent of metropolitan transit with the completion of the
Bay Area Rapid Transit (BART) system is expected to result in a surge in
immigration to the central and western sections of the county during the
coming years. Currently, approximately 70,000 residents commute to jobs
outside the county.
Contra Costa County includes the incorporated cities of Concord,
Richmond, Martinez, Antioch, Pittsburgh, El Cerrito, Walnut Creek,
Lafayette, Brentwood, Clayton, San Pablo, Pinole, Pleasant Hill and
Hercules. Major unincoporated areas are Orinda, Moraga, Rheem, Crockett,
Rodeo, Port Costa, El Sobrante, Danville, Alamo, San Ramon, Oakley,
Knightsen and Byron.
The largest jurisdictions in the county are Concord (85,000) and
Richmond (79,000); the smallest is Hercules with a total population of 252.
Of the total population in the county, 9 percent are Spanish-speaking
Americans and 7 percent are black. Richmond has a black population of
40 percent.
Contra Costa ranks fourth in California in the level of per household
income with an average annual income of $12,423 per family. From the
approximately 168,000 households in the county, 6.2 percent are families
with incomes below the poverty level. The highest concentrations of poverty
income families are in the cities of Richmond, Pittsburgh and San Pablo, and
the unincorporated community of Rodeo. Poverty levels are determined on a
sliding scale of income according to the number of persons in a family. The
non-farm poverty index scale places a family of four below the poverty level
if total income is less than $4,300 annually; for a family of six the annual
income level is $5,700.*
* The Office of Economic Opportunity. Poverty Income Guidelines, June 20, 1973.
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As defined by California law Contra Costa is a general law county, which
follows state laws in establishing an administrative structure within the
county. The county is governed by a five-member Board of Supervisors elected
on a district basis for four-year terms. The board exercises legislative and
executive authority over the operation of some 30 county departments. Most
executive duties are performed by the county administrator who is appointed
by and serves at the pleasure of the board.
B. SELECTION AS A PROJECT SITE
Contra Costa County is representative of several characteristics common
to county governments across the country. It was chosen, along with five
other pilot sites, for the NACORF/Allied Services Project to provide as com-
prehensive a picture as possible of the types of service delivery and levels
of services integration found in the nation's counties. The criteria are
discussed in detail in the Site Selection segment of Chapter III.
With a population of approximately one-half million people, Contra
Costa is typical of many counties in the western part of the United States.
It includes a large center city, Richmond, experiencing many of the problems
of depressed urban centers; it is a suburban "bedroom" community for the
large metropolitan areas of San Francisco and Oakland; and its land is
predominantly rural.
The county is governed by an elected board and #n appointed administrator.
It has been progressive in its efforts toward services integration by establish-
ing a Human ResouVces Agency, and multi-service centers providing comprehensive
human services to clients. Contra Costa is charged with the provision of a
wide range of services including welfare, health and mental health, and is
planning a data collection system.
Since Contra Costa is the recipient of a Department of Health, Education
and Welfare (HEW) allied services demonstration grant, the resources and staff
to concentrate on services integration are available for an extended period
of time. The City of Richmond is also a pilot site for the National League
of Cities/United States Conference of Mayors' Allied Services Project, pro-
viding another perspective on the same substate area. These were major factors
in the pilot selection process.
C. MAJOR HUMAN SERVICES AGENCIES AND PROGRAMS
1. HUMAN RESOURCES AGENCY
Contra Costa County is directly responsible for providing most human
services in the county. Services are administered by several departments
within the county Human Resources Agency. This "super" agency was formed
in November, 1971, in response to a report submitted by the County Adminis-
trator, J. P. McBrien, to the County Board of Supervisors concerning the
consolidation of the county's social programs. The report noted that the
work of the social service, medical service and health departments increasingly
interrelated, and recognized that health and medical card had become an
integral part of social services. It recommended the three departments be
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consolidated into one body. The resulting Human Resources Agency (HRA)
became the single administrative authority for social, health and medical
services. The new agency also provided an organizational framework suited
for further implementation of the neighborhood center approach to delivery
of comprehensive social services. Its goal is a totally integrated social
services program for the county.
The Human Resources Agency, under the direction of former County
Welfare Director Robert E. Jornlin, has three major service departments.
a, The Health Services Department, directed by Dr. Glen W. Kent, provides the
following services from offices in Martinez, Pleasant Hill, Pittsburgh and
Richmond: alcoholism information and rehabilitation; community health
services--dental health, health education, mental health, public health/
nutrition and vaccination programs; environmental health service--environmental
sanitation, industrial hygiene, and rodent control programs; home health
services--home health and public health social work programs; medical care
services to crippled children and medical care consultation; and public health
medical services programs in communicable and venereal disease control, mater-
nal and child health, and tuberculosis.
b. The Medical Services Department, directed by Dr. George Degnan, is responsible
foi the county hospital;. the county mental health clinic; community mental
health services; the county medical social service unit; two multi-purpose
medical centers in Concord and Richmond serving as general purpose clinics,
and three outpatient clinics in the cities of Brentwood, Pittsburgh and
Richmond. •
c. The Social Servites Department, directed by Claude van Harter, operates offices
in Martinez, Pittsburgh, Pleasant Hill, Richmond, San Pablo and Rodeo. - These
offices administer the following programs: dependent children and senior
citizens' services, vocational assistance, adoption and foster home services,
food stamps, public assistance intake and referral counseling.
Programs provided by the three departments are coordinated through the
Program Affairs Division of HRA. The division also provides a program
planning staff to assist the individual departments in planning, and in
coordinating these efforts for implementation by the parent agency. HRA's
Management Affairs Division provides and coordinates personnel, financial
and management systems services.
d. Rodeo Community Services Center, a multi-service community center in the
�unincorporated area of Rodeo,has been operating since 1966 when the Contra
Costa Board of Supervisors unanimously approved its establishment. The
Rodeo Community Service Center is sponsored by several county agencies
which provide a wide range of services in public health, social and medical
services, and probation to a small, well-defined geographical area. The
center is administered under the aegis of the Human Resources Agency.
Rodeo, population 5300, was chosen as the center's site because it is
a geographically isolated community with a wide range of economic groups.
The center is designed to serve the total community rather than a target
group. Its services are integrated, giving counselors overall responsibilty
for case coordination. The center operates under the premise that the staff
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should view the clients' needs comprehensively, rather than addressing each
problem area separately. As a result, staff members are less protective of
program prerogatives and increasingly concerned with maximum service delivery.
Continual financing is provided by HRA, through participating departments'
budgets, thus eliminating dependency on special project funds•. Originally an
experiment In creating a more effective model for delivery of interagency ser-
vices, the center was developed to evaluate its potential application through-
out the county. Since this potential has been realized similar centers have
been established; two are serving the rural areas of the county and another
is located in Richmond.
The Rodeo Center currently provides services in family counseling, child
care, immunization, voter registration, recreation, summer jobs, drug abuse,
senior citizen activities, day care, adult and juvenile probation, volunteer
work, alcoholism, youth activities, manpower, vocational counseling and
referrals, social security, mental health, public health, health education,
family planning, public assistance, emergency services and transportation.
It also has established liaison with many community organizations including
churches, service clubs, the school district, the Contra Costa Housing
Authority, Bayo Vista Tenants' Council, California Highway Patrol, the
County Sheriff's Department, St. Vincent de Paul, Salvation Army, Read Start
Day Care Council, Chamber of Commerce, OEO Area Council, Senior Citizens
Council, drug programs, Alcoholics Anonymous, In-school Neighborhood Youth
Corps and the Rodeo-Crockett Youth Group.
2. FEDERALLY FUNDED SERVICES PROGRAMS
a. Allied Services Project. One task of Contra Costa County's allied services
grant from HEW involves designing an initial test of the Allied Services
Act of 1972, assuming. the county would be prime sponsor. A primary objective
is to create access, linkage and follow-through mechanisms which would co-
ordinate the separate public and private agencies providing human services
in the county. Specific service problems in the community could then receive
• the concentrated and coordinated attention of many agencies and services
providers.
The project includes an analysis of six census tracts in Richmond.
This central city area contains the Richmond Model Neighborhood program--
the city's poorest section with a median income of $6930, compared with
4 median income of $10,360 for the entire city. Of the area's 26,937
residents, 76 percent are black and 9 percent are Spanish-speaking Americans.
Unemployment in the area is approximately 12.7 percent.
The Allied Services Project has formed two steering committees, the
Allied Services Board and the Allied Services Commission. Representatives
from the major services providers in the county serve on the board. They
include the county administrator, human resources director, medical services
director, social services director, county health officer, county probation
officer, Richmond city manager, chief of the Richmond Police Department,
superintendent of the Richmond United School District, director of the
Richmond Model Cities Program, and the Allied Services Project director.
The board has no set membership units; additional members will be added if
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necessary as the project develops. The board provides authority for the
project as well as staff and other resources. It approves the goals and
objectives, is responsible for follow-through and for explaining the project
to the community, other agencies and governing bodies. Finally, it is
charged with review and approval of the project's final planning proposal
with the concurrence of the Allied Services Commission.
Individuals from the private sector serve on the Allied Services
Commission. Commission members are familiar with the project area and often
represent low-income or minority groups, community based or civic organiza-
tions, or special consumer interests. The commissioners participate in the
project's planning and operational activites, review and approve project
material, and serve as liaison with all segments of the community. Task
forces will be formed to deal with specific problem areas.
The project also has formed an Allied Services Planning Group as a
consultant body to perform special assignments. Members of this group are
administrators and planners from each of the affiliated agencies and organi-
zations, and others whose expertise is required. The original planning
structure and organizational document may be found in the reference section
of the chapter.'
b. Office of Economic Opportunity. The Contra Costa Office of Economic
Opportunity serves as the only community action agency (CAA) in the county.
Currently funded by the federal Office of Economic Opportunity (OEO) , the
CAA is seeking local funding sources including support by the county govern-
ment. This agency has been endorsed by all cities in the county and provides
programs in manpower, head start, and assistance to Spanish-speaking people
on a county-wide basis.
C. Richmond Model Cities. The local service provider for Richmond is the
Richmond Model Cities Project funded by the Department of Housing and Urban s
Development (HUD) . In operation for five years, the project is considered
one of the best in the country. Programs include health and child care,
mental retardation, outreach, home demonstration, drug abuse and services
for the elderly. The Pittsburgh Model Cities Project also provides a wide •
range of programs including a county funded child care development project.
3, PRIVATE SERVICE PROVIDERS
Several private agencies provide human services in the county. These
include the Contra Costa Association for the Mentally Retarded--rehabilitation
programs; the Comprehensive Health Planning Association of Contra Costa
County--public health service programs; and the United Bay Area Crusade--
basically a San Fransisco and Oakland group offering limited services. Local
volunteer agencies provide programs in transportation, family meal services,
foster care, child care, and similar activities. The state provides vocational
rehabilitation in the county through its Department of Rehabilitation.
The Contra Costa County Coordinating Council was established late in 1972,
as a coalition of private human service providers in the county. Currently
approximately 30 agencies participate in the council, supported by the United
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Bay Area Crusade, the Human 'Resources Agency, OEO, and the local model cities
projects. These organizations participate in the council but have no vote.
The coordinating council currently is working with other groups on a revenue-
sharing proposal for consideration by the county Board of Super-visors.
D. NACORF TEAM VISIT
1. PRE-SITE VISIT
Prior to the actual team site-visit,flACORF Allied Services Director,
Al Templeton visited the county on February 22-23, 1973, to explain NACORF's
project and to establish a schedule fur the three day site visit. Mr.
Templeton met with J. P. Kenny and J. E. Moriarty, members of the Board of
Supervisors and its Human Services Committee; J. P. McBrien, County Adminis-
trator; Judy Ann Miller, director of the Allied Services Project; George
Feiler, allied services staff; Warrington Stokes, chief of Social Program
Planning and Development for the Human Resources Agency; and Robert Jornlin.
Ile explained the proposed Allied Services Act, the role of HEW, and the se-
lection of pilots for the NACORF project. County officials and staff
were enthusiastic about the allied
lied services concept and the proposed act. The
team found the county representatives well informed about services integration.
An interview schedule was established for the team members that included
people from a wide range of disciplines and agencies involved in local
human services planning and delivery. A list of county leaders with whom
team members met may be found in the reference section of this chapter.2
2. PARTICIPANTS AND SCHEDULE
The NACORF/Alried Services Project team visiting Contra Costa County
March 19-23, 1973, included three allied services specialists and two
members of the NACORF staff. Al Templeton led the team of: Joseph
McGavick, director of the Department of Budget and Program Planning of
King County, Washington--county management specialist; Frank Panarisi,
administrator of the Human Resources Agency for San Diego County, California--
county human resources specialist; Dr. Fred Lundberg, director, Institute
for Urban Information Systems, University of Cincinnati--information
systems specialist; and Mary Gooch, NACORF project research associate.
Robert E. Jornlin, director of the Human Resources Agency, and Judy
Ann Miller, director of the Contra Costa County Allied Services Project
were the team's hosts.
The three day site-visit began Tuesday evening March 20th, with a
meeting attended by the team members, Mr. Jornlin, Mrs. Miller and Don
Crawford, program affairs assistant, HRA. Interview schedules were reviewed
and amended and the objectives of NACORFs study were discussed. County
representatives acquainted team members with the nuances of the county's
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operation and the prevailing attitudes. At the introductory meeting on
Wednesday the project 's objectives were explained to some 35 persons,
including representatives from the Board of Supervisors; the Human Resources
Agency; HEW-- regional office; the state Intergovernmental Relations Office;
the Richmond Police Department; the Richmond Model Cities Program; the County
Probation Department; and several private service agencies. The team then
separated for two days of individual and group interviews. * The site-visit
schedule is included in the reference section.3
3. TECHNICAL ASSISTANCE
While on-site, the team members offered a wide range of technical
advice. Alternative approaches for implementing a services integration
program were suggested.' Basic considerations important in planning a data
collection system were outlined by Dr. Lundberg. Mr. McGavick and Mr.
Panarisi shared their personal experiences in county services integration
with staff from several Contra Costa agencies. Mr. Templeton explained the
proposed Allied Services Act, its program implications and its potential
impact on local governments. For a more detailed discussion see Chapter IX.
E. FINDINGS
11 STATUS OF SERVICES INTEGRATION IN CONTRA COSTA COUNTY
Contra Costa County has maintained close working relationships between
its 'agencies and other public and private human services providers serving
county residents, The county has pioneered services integration at the
local level and could serve as a model for other counties' integration Pf
human services delivery systems.
The county initiated its services integration in 1965, when the county
health and welfare agencies began developing methods of delivering a compre-
hensive range of human services. This initial effort resulted in the
establishment of the Rodeo Community Service Center in 1966, and has led
to a continuing commitment by the county government to design an integrated
services delivery system.
Over the years, the county has employed several methods to coordinate
and integrate the services of all providers. This includes service contracts,
planning programs jointly funded by separate agencies, and the establishment
of community groups to increase citizen participation in the planning and
implementation of service programs.
The county supports the housing authority's expanded leased housing
program by providing contracts for day care, home nurse services and some
other social service needs, it has arranged social service contracts with
school districts for head start, Neighborhood Youth Corps, vocational
training and day care. By contractual arrangement with the Martinez Unified
School District, the county has provided joint funding, enabling the district
to employ a social worker to assist school age youngsters whose families are
, receiving public assistance.
At
1
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a. Human Resources Agency. The recent formation of HRA to administer all of
the county's human services programs is indicative of the commitment to
services integration.
All county administered services are under the budgetary control of
the Board of Supervisors and the county administrator. The Human Resources
Agency is the sole administrator of all public health service's, inpatient
and outpatient medical care, mental health services, social services and
public assistance. Responsibilities, therefore, are defined clearly.
This structure provides an ideal climate for the coordination and integra-
tion of human services programs.
Although the concept of allied services is generally accepted in
the county, the Human Resources Agency has encountered strong resistance
by some county agencies brought under its control. These territorial
considerations are the only major inhibiting factors to operational success
of services integration. Those interviewed indicated that this problem
can be overcome with the continued development of strong county relations
by the HRA director. Mr. Jornlin, respected thoughout 'the community, is
associated with the concept of integrated delivery systems for human sys-
tems for human services and has been active in establishing communications
with other service providers. It is reasonable to conclude that territorial
problems will be resolved.
The Human Relations Agency is also establishing a communications net-
work within the county government, with the support of all service-providing
departments.
I
b. Multi-Service Centers. The Rodeo Community Service Center--the model for
the county--provides services in outreach, intake, information and referral,
diagnosis, case management and record-keeping to three small suburban
communities. The Oakley Community Services Center and the Brentwood
Community Services Center provide these services to the rural eastern
part of the county. Another community service center currently serves
the central city of Richmond.
In each case, there are direct service linkages to units of county
government, some of which are now administered jointly under the HRA
including public health nursing, probation, public assistance, mental
health and social services. The centers also provide offices for state
.agencies offering employment and vocational rehabilitation. Voluntary
agencies and community organizations also have staff located in the
centers. In Rodeo, the center is used as the field office of the Social
Security Administration.
C. Allied Services Project. The initial task of the project was the pre-
paration of a plan to address five major service problems in Richmond.
t i l
At the time of the site-visit, the project was not yet fully staffed
although separate task forces had been formed to examine the five major
problem areas. The task forces will produce a feasibility study including
a plan for services. integration among the participating agencies.
The NACORF team suggested a concentrated focus on project objectives
and specific steps to produce visible guidelines. Several months after
the site visit, the staff is making considerable progress. The revised
work plan is included in the chapter's reference section-4
2. INTERGOVERNMENTAL RELATIONS
a. County-City. Contra Costa County experiences good relations with the cities
in the county. Members of the Board of Supervisors, several of whom are
former members of city councils, meet regularly with the suburban mayors.
The County Administrator, J. P. McBrien, meets monthly with the county
association of city managers. Intergovernmental contracts exist between
the cities and the county, and serve to strengthen the.se relationships.
It was apparent during the team's interviews that the county has led
in -the social service program areas. When the county formed its community
action agency (OEO) , the cities endorsed the project. Recently, the cities
have agreed to plan together for land use zoning, and have given the county
primary responsibility--a unique intergovernmental relationship.
,.The county's involvement in purchase of servicb agreements with the
City of Richmond% through the Richmond Model Cities Project, entails joint
planning, joint funding and shared administration of a health care outreach
project; a child care development project; a home demonstration project; a
community drug council; and a project for planning services for the elderly.
The director of the Richmond Model Cities Project also serves on the board
of the Allied Services Project.
Agreements are in effect between the county and the City of Pittsburgh
to purchase services through the Pittsburgh Model Cities Project, involving
shared planning and joint funding of a child care development project.
The Department of Social Services cooperates with a juvenile diversion
program initiated by the Richmond Police Department. Two protective service
workers of the Human Resources Agency work with the police to find alterna-
tives .for young people outside the criminal justice system.
Richmond pays the highest police salaries in California and has several
LEAA training programs designed to sensitize officers who confront adult
and youth cirsis situations. It supports HRA's foster care program and the oil
Allied Services Project; the department's chief serves on the Advisory Board
of the Allied Services Project.
The team was impressed with the cooperative attitude between the city
service providers and the county Human Resources Agency. Team members
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never encountered the city-county hostility found in many areas in the
country, mutual respect and cooperation prevail.
Since territorial conflicts among the levels of government are at
a minimum, the climate is excellent for services integration between units
of general purpose government. This largely is attributable to California's {--
mechanism for human services delivery. Counties are charged with the admin-
istration and provision of major social and health services. Giving a specific
mandate to one level of government increases its ability to act effectively.
Considerable program innovation can be credited to this clear definition
of responsibility. It also eliminates the friction that frequently surrounds
county--state relationships regarding services delivery.
b. County-State. The county has very little involvement in state human services
programs, especially in services integration. Until recently, the state had
shown limited interest in allied services. However, representatives from
the state Council on Intergovernmental Relations indicated to team members
that the state now is taking a more favorable position on allied services.
Currently the state is looking for ways to provide technical assistance
to the county's human resources programs.
The state services center in Richmond, originally designed to provide
services in health, manpower and social services, has experienced funding
cuts and its existence is threatened. The state Department of Rehabilitation,
through joint agreement with the county, has stationed vocational rehabilta-
tion workers in the county Department of Social Services, and in multi-
services centers to serve socially and physically disabled recipients of,
public assistance.
c. C . The county nt h c u y se e ry s on all regional planning bodies through
direct membership on each board, financial participation or provision of
staff. It is involved in planning with the regional office of the Law
Enforcement Assistance Administration (LEAA) , CAMPS, Bay Area Comprehensive
Health Planning Association, Regional Mental Health Planning Board, Regional
Development Disabilities Board and Association of Bay Area Governments
(ABAG) . The Program Planning Division of the Human Resources Agency is
responsible for planning for the county. Local community groups initiate
planning proposals through the Contra Costa Community Council in coopera-
tion with the county government. The degree of comprehensive planning
in the county to date has been limited. A coordinated plan currently
being designed was given impetus by Contra Costa's HEW funded pilot project.
d. County-Federal. The regional office of HEW works closely with the county
through the Richmond Model Cities Program and the Allied Services project.
Lucy Ellison, Deputy Regional Commissioner for Social and Rehabilitation
Services, met with team members and indicated a strong commitment to both
programs.
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An effective working relationship has been established between the
two levels of government, given the frequent interaction between federal
and county personnel, and the quality of the program staff specializing
in human resources in Region IX.
3. COUNTY AND PRIVATE SECTOR INTERACTION
Approximately 25 purchase-of-service contracts are in effect between
the county and private voluntary agencies. These involve both county and
private financing including United Bay Area Crusade (UBAC) funds, used
to match federal social service monies.
UBAC is the United Way fund-raising organization for the five counties
in the San Francisco Bay area. It is currently planning a neighborhood
service delivery system in the Oakland area which calls for the integra-
tion of related human services. UBAC has one field representative who
serves as a liaison with Contra Costa County. However, it focuses atten-
tion primarily on San Francisco and Oakland and, to date, has had limited
involvement in the county. Florence Scott, the UBAC representative for
Contra Costa County, indicated UBAC's endorsement of the allied services
concept, and expressed to team members her hope for the agency's increased
involvement in the county's Allied Services Project.
The Contra Costa Coordinating Council, representing private social
service providers, was created when Title IV-A of the Social Services Act
presented a potential for county sponsorship of private agencies. The
county's involvement in the council's formation demonstrates an early
recognition of its role as leader in services integration.
4. DATA COLLECTION CAPABILITIES
Contra Costa County has not developed a centralized computer system
capable of housing a data base which would allow access to the computer
from remote terminals. Instead, a centralized batch-processing computer
installation under the control of the county auditor serves all of the
county's needs. It operates 24 hours a day, five days a week.
This computer center is too small to handle the potential data
processing uses in the county, but seems adequate for current applications.
The county has two model 360/40 IBM computers, one owned and one leased.
Each machine has 128K bytes of main memory; operating under DOS/Batch/
Multiprogramming/Release 26. An additional 128K recently was added for
teleprocessing. It was unclear why the county has two machines of the
same size rather than one faster unit with more storage capability
available at competitive prices.
The computer center facilities seem to be efficiently used, but are
small for a county of Contra Costa's geographic size and population.
Costing and evaluation services provided by the department are excellent.
No project is placed on the computer unless it has been thoroughly thought
Out and its cost tightly estimated.
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The staff has identified several informational requirements for
managing resources at the departmental level. They hope to develop
data to provide improved reporting and a monthly evaluation of general
resources and objectives including agencies, specific programs and
barriers to program success. These barriers are defined as service needs
or social problems.
A proposal for a management information system at the departmental
level has been forwarded to HEW, although no computer work has been done
to date. The proposed system would not deal with the data from individual
clients, rather, it would provide reports from the department head to the
unit manager.
The Department of Social Services also has identified some "future
information wants," including a central client data exchange on a real
time basis for proper services referral and certification of eligibility.
A comprehensive directory for client referral to any service will be
important to future services integration. The index would also access
a register of all services facilities available to any client in the
area.
The only other available computer system within the county is located
in the Richmond Unified School District. This computer center is a small
and overloaded facility featuring an NCR Century 200 computer. The machine
has a 128K memory, with four number 657 disk units at 28 million characters
each. There are five tape drives (622) at 800 BPI with nine tracks. The
operating system is the Century B-3,release 8, with multi•-programming.
AN Operations usually run in two sections. Occasionally only one is required
depending on the size of the data base and the user's program. There is
one communications controller plus two teletype units. Most data processing
in the center is done in emulation form with programs written in AUTOCODER
from an earlier 1402 System. This modest sized center seems overwhelmed
by the work and there is little likelihood it could absorb data processing
from the Allied Services Project or an expanded services integration
program.
HRA requires a computer facility that can respond to the needs of
human service providers, and currently is negotiating with a private
computer company for the installation of a human resources data collection
system. However, without adequate funding the county will be unable to install
such d system, and local services integration efforts would be stymied.
5. BARRIERS AND BRIDGES TO SERVICES INTEGRATION
While barriers to services integration exist in most areas of the country,
the degree is relative. In Contra Costa the problems are manageable and
can be overcome with improved communications and concentrated effort.
Some private service providers fear domination by the public sector
under an integrated system and the resulting loss of identity, autonomy
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and control over their specific programs. They expressed concern that the
act does not incorporate a strong requirement for citizen participation,
a reservation qualifying their basic support for the proposed legislation.
The organization of the Human Resources Agency represents a significant
step forward in structural sophistication, commitment to advancing the
policy of services integration, and to single line administrative control
over public health and social service program's. In effect, HRA is the
"cutting edge" in comprehensive integrated services delivery in the county.
Less than full commitment to enumerating existing service delivery
problems and to identifying the optimal delivery system was evidenced.
This is due in part to the previous autonomy of the public agencies now
consolidated within HRA and partly reflects personal concerns, such as
Job tenure and status. To the NACORF team, this barrier would be eliminated
in time as local leadership in human services integration emerges and
sufficient federal incentives are provided for a comprehensive program.
The county has the necessary staff within HRA to develop an integrated
program and has shown both commitment and considerable progress in that
direction. Proliferation of contractual service agreements and joint use
of funds with other human services providers are further evidence of the
agency's capability. The Human Resources Agency has established excellent
working relationships with the public and private service agencies in the
county, and clearly has assumed a leadership role in-the field of human
services. Since the county has responsibility for programs there is a
pronounced degree 'of uniformity and interagency communication.
Since the Board of Supervisors is elected from a broad representative
base and has major responsibility under California law for public services
delivery, the county maintains strong governmental authority. Having
received the board's endorsement, HRA is in a good position to design an area-
wide allied services plan.
A major bridge to the success of services integration is embodied in
Contra Costa's Allied Services Project which includes the staff and other
resources available to focus on program planning and implementation.
Although additional financial resources will be necessary to achieve
services integration, particularly for data collection and systems
analysis, the NACORF team concluded that allied services will be imple-
mented in Contra Costa with comparatively little difficulty.
F. RECOMMENDATIONS
1. PRIME SPONSOR
The NACORF/Allied Services Project team unanimously recommended that
the County of Contra Costa, through its Human Resources Agency, be desig-
nated the local prime sponsor under the Allied Services Act.
J-W
* M
-86- •
The county has responsibility to provide human services, and serves
all major areas and cities within its boundaries. The Human Resources
Agency is providing leadership in program and personnel development,
toward meeting the requirements of the Allied Services Act in planning,
coordination, evaluation and accountability. HRA also is coordinating
the major service providers in the social service system through several
contractual relationships between the county and other public and private
service providers. The Allied Services Project gives specific focus to
the objectives embodied in the act.
2. RECM ENDED CHANGES IN THE COUNTY TO IMPLEMENT ALLIED SERVICES INTEGRATION
To-be an effective prime sponsor, the Human Resources Agency must
develop a more coordinated management structure. HRA will need to focus
its planning attention on problem areas and resource priorities rather
than accomodating an existing agency. In addition, for example, the
county should consider incorporating the County Probation Department
within the Human Resources Agency, to include that functional area in
the integrated services delivery system. If this is not appropriate,
then a special mechanism will be needed to insure consolidated planning.
The county must nurture its existing relationships with nongovern-
mental services providers at all levels. Particular attention should
be devoted to improved relations with the state. Although each would
administer separate programs under the Allied Services Act, there will
be increased state-county interaction. A sophisticated data collection
l
capability is essential to the success of the Contra Costa allied services
approach; and the county should make preliminary plans toward the
establishment of such a system. A
Finally, the Board of Supervisors with HRA guidance should create a
planning mechanism capable of establishing and coordinating the county's
objectives for human resources integration. This mechanism should be
designed to include representatives from non-governmental services pro-
viders, and non-county public service agencies.
3. ALTERNATIVE PRIME SPONSORS
Some local officials suggested as alternative prime sponsor the
regional council of governments, or a coalition of agencies. However,
the Association of Bay Area Governments (ABAG) ; currently not a strong
regional body, is an unlikely candidate for the role. No coalition of
agencies which could sponsor allied services presently exists. An
alternative suggestion involved formation of a coalition of cities,
unincorporated areas and human service providers, including the county,
specifically to sponsor allied services. This innovative idea might
Work well in other counties where no agency or other governmental unit
is capable of managing the planned delivery of services.
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4. SERVICE PROVIDERS AND INTEGRATED PLANNING
A list of those agencies in the county to be included in services oil
integration planning may be found in the reference section of this
chapter.
5. TECHNICAL ASSISTANCE
The project team recommended that NACORF staff, In cooperation with
federal regional office, consult with the county on the technical aspects
of their Allied Services Demonstration Project. It would be useful, as
the project progresses, to. incorporate suggestions from local, state, and 11
national levels into one program to maximize resources and develop an
optimal program for possible replication in other counties. This inter-
governmental approach would focus on: (1) planning integrated services
information systems, (2) developing management policies and procedures
involving internal communications, (3) planning objectives, strategies
and specific tasks to implement services integration and (4) evaluating
local progress in terms of the national objectives embodied in the proposed ti
AlliAd Services Act.
A more detailed treatment of technical assistance may be found in
Chapter IX.
6. SUGGESTED AMENDMENTS TO THE ALLIED SERVICES ACT
Local service providers in Contra Costa agreed that the Allied
Services Act of 1972 should be expanded to include all aspects of parti-
cular program service areas. For example, the health maintenance organi-
zation concept and the. National Health Insurance Program, if passed,
should be included in health services integration. The county staff
noted that if these major health proposals are not included, categorical
programs would be superimposed on a partially integrated delivery system,
defeating the act's objectives. Ideally all programs in each functional
area should be planned as a package, even if implemented in stages.
Funds need to be provided in the act to establish human resources
staffs and planning capabilities. Although Contra Costa County has an
allied services pilot grant, additional planning and start-up monies
are required to insure the success of an allied services plan. The act,
as it stands, requires not only planning, goal setting and management tools REM
to organize a more effective service delivery, but also requires negotia-
tion, cooperation and coordination with many agencies at all levels of
government. In large measure the act ignores the need for resources to
achieve intergovernmental cooperation.
It was suggested that the act require state and HEW identification
of a substate government to fulfill its objectives. This mechanism would
assure local governments maximum flexibility to address their specific
community needs. It would provide an opportunity, as well, for states to
address problems independently in ways appropriate to their particular ra-
quirements.
-88-
other suggestions included: 1)
a requirement that conformity to an
accepted allied services plan takes precedence over other state and regional
plans in regard to allocation osystem be designed
f resources; 2) a strong
or insuring that waivers of regulations and guidelines3) priorityr available
in obtaining when
needed to carry out the allied serv'icnciesdnarticipating in allied = _ _
es p
categorical grants be given local ag p
services plan; 4) federal assistance toorlocal communities with
c hied ting
services plans in negotiating waivers P
agencies--for instance, area-wide eligibility and licensing practices.
-' Finally, general federal incentives would be important to the success
of human services integration at the local level.
These would include:
1) fiscal flexibility, particularly mixing funds from various categorical
programs at the substate level; 2) support for uniform federal/state
laws to facilitate planning, implementation and accountability; and
approach
3) regulations reflecting a comprehensive rather than piecemeal
to legislation.
ro rams,
-, The Allied Services Act, currently extending only delivers most
is well suited to Contra Costa, win countiese one uwherenty gno human services
of the human services. However, with the spec-
.�
agency exists, broader legislation dealing comgrehensadmi
trum of human services pableaand-must benconsideredg those � administered by
HEW--would be more adapt ,
i
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;'-170-
x.
-170-X. CONCLUSIONS'AND• RECOMMENDATIONS
The NACORF Allied Services Research Project has a specialized focus.
The objective is to describe the status of human services integration .at
the county level, analyzing services integration problems and' solutions
in relation to the proposed Allied Services Act of 1972.
This chapter summarizes the major conclusions derived from the
individual research reports of six counties' services integration activ-
ities and analyzes the suitability of the proposed Allied Services Act of
1972 to services integration in these counties. The six counties expressed
- , interest in participating in NACORF's Allied Services Project, and were
selected for their diverse geographic, demographic, governmental and,
services delivery characteristics.
Section A defines terms and discusses services integration issues.
Section B compares and contrasts the six counties in relation to the human k
services they administer, their activities and leadership in integrating
services, the effectiveness of their governmental structure, the quality t
of their intergovernmental and interagency relations. It mattes specific °-
M data collection recommendations. Section C examines the provisions of
the allied services legislation and assesses their suitability ,to the
six counties. Section D• recommends basic changes to the Department of
}Health, Education and Welfare for improving the proposed act and the , . .
department's services integration strategy. .
A. DEFINITIONS AND OVERVIEW ti>
A human service is defined in the proposed act as any assistance to
an individual or family which promotes personal independence and economic
self-sufficiency. The functional human service categories include public
health, mental health and retardation, drug addiction and alcoholism,
social services, public assistance, vocational rehabilitation, manpower,
child care, youth services (delinquency prevention, correction and pro-
bation) , aging, food and nutrition, housing and education.
The term services integration is used broadly in this report, to
-K. include any effort to improve the planning, coordination, delivery or
evaluation of two or more human services.
While many human service'programs are limited in authority and
scope--such as one designed by a private agency to meet a specific local
problem--others constitute delivery systems in their own right. They are
established by federal laws as amended, require financial participation
by the states, provide the states with an administrative role, and some-
- times suggest administrative roles for local government and other service
delivery agents. At the lowest administrative level, 'these delivery
Systeme frequently include private agencies with .contracts .to serve
�;, eligible recipients.
4
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The differences within and between these delivery systems are legion.
For example, vocational rehabilitation is a division of the department of
education in one state, an independent department in another, and a part
of an umbrella agency providing several human services in a third. Under
the original provisions of the Social Security Act, states had the choice
of administering welfare services directly or delegating that role to
their counties. The hierarchy for most education programs is federal
to state to local school board, bypassing local government. Many remedial
education programs are funded from Washington directly to the local educa-
tion agency.
Other complications arise in the analysis of the human services
delivery system. Some federal agencies administering human services pro-
grams have decentralized decision-making to their regional offices, while
others have not. Some states have organized umbrella human service
agencies; but most have not. Depending on the definition of client pop-
ulations, a given human service could be considered a primary service in
one instance and a supportive service in another. For example, mental
health services can be supportive to some manpower clients, and manpower
services can be supportive to some mental health clients.
As might be expected a wide variety of strategies exist--some of them
.conflicting--for improving the delivery of human services. One strategy
suggests consolidating programs along functional lines, providing "cradle-
to-grave" health care, for example. Another strategy calls for organizing
comprehensively to serve special age groups, such as young children,
youth and the elderly. Some strategists would start by standardizing the
administrative mechanisms of all delivery systems, while others would
concentrate on breaking the individual human services into their smallest
components and defining service units which produce measurable results.
There are many unresolved issues. Should the balance of authority
for coordinating human services rest at the federal,regional, state,
substate, county, city or neighborhood level? Should professional mana-
gers, consumers or elected officials have the primary policy role?
Should long term, comprehensive planning occur at the same administrative
level as annual program planning? Can the unplanned, heterogeneous human
service system be coordinated effectively by removing restraints one-by-
one, or by establishing a central authority?
In general, the allied services concept, as embodied in the act,
would have several significant effects.
° It would redress a relative lack of state involvement in human
services integration by giving the governor approval over local allied
services plans.
° It would encourage governors, mayors .and elected county officials
to assume new responsibility for coordinating HEW programs.
° Although state participation is voluntary, localities and private
agencies initially are bound'by a negative decision on the part of the
state. While. no penalties are incurred for not participating, incentives
are limited.
s
.-172-
y • It would provide ,several opportunitied to improve the human services
delivery tiystem. ,.
. STA'T'US OF HUMAN SERVICES INTEGRATION IN SIX COUNTIES
1. COU'tTY ADMINISTERED HUMAN SERVICES
L The concept of county government frequently evokes images of court-
houses, Jails and secondary roads. it is not widely recognized that
most counties--including the six .participating in NACORF's Allied Services
Research Project--provide significant human services as well. For
example, in 22 of the 50 states, counties have direct responsibility
for administering welfare and social services.*
Each of the six counties collects taxes for public schools which
are administered by independent boards. Five of the six administer
juvenile and adult courts and probation departments; the sixth, Marion
County, has a youth commission which coordinates county youth projects „
with the court system.
Public welfare services are provided by county departments in three
of the six counties. In the other .three, the county welfare offices are
administered by the state welfare departments.
All six counties raise tax monies for public health and hospitals,
ur
and half of them administer health programs and facilities directly. In
two counties, however, the health and hospital authorities are relatively
autonomous. Shelby County has the power to approve the health and hos-
pital budget, while Marion County only reviews the health budget. In
IL the sixth county, Blue }Earth, public health is administered by the State
Of Minnesota. Mental health services -are provided by divisions of the
health departments in Orange, Maricopa and Contra Costa Counties.
--• Through community action agencies, three of the six counties are
providing a variety of anti-poverty services, ranging from Head Start
and food stamps to Job development and programs for the elderly. Marion
IL County/Indianapolis has gained a similar experience by running the
nation's largest Model Cities Program.
The six counties have. become involved in the delivery of.miscellaneous
—� human services, such as sponsoring a meals-on-wheels program for the
elderly. Vocational.rehabilitation appears to be the only human service
in which none of the counties directly participates.
* Alabama, California, Colorado,, Georgia,..Illinois, Indiana, Iowa,
Maryland, Massachusetts,.. Minnesota, Montana, Nebraska, New Jersey,
New York, North Carolina, North Dakota, Ohio, Oregon; South Carolina,
Virginia, Wisconsin and Wyoming.
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2. COUNTY ACTIVITIES AND LEADERSHIP IN HUNAN SERVICES INTEGRATION
Several methods have been used in the six counties to improve human
services delivery including reorganization, service decentralization and
greater community involvement.
In the counties studied, human services delivery was improved by
a reorganization of the human services system, or by fundamental changes
in the structure of the county government. Contra Costa County placed
all health, social services and mental health services into a Human
Resources Agency. The consolidation of Marion County/Indianapolis created
seven major departments to which a human resources department will be
added. By adopting a charter form of government, Orange County gave
' responsibility for its human service agencies to the elected county
executive. Shelby County and Memphis have discussed the possibility of
a county-wide human services department.
The anti-poverty programs of the community action agencies in Contra
Costa and Maricopa and the Model Cities Program in'Marion are being
integrated into the permanent county structures.
Decentralizing county human services and encouraging other public
, and private agencies to •provide a comprehensive variety of human services
at the neighborhood level has been a major goal in Contra Costa County.
Marion County is pursuing this strategy with demonstration multi-purpose
neighborhood centers, while Maricopa and Blue Earth Counties plan extensive
decentralization. •
As counties provide more human services, they encourage more response
from community groups. Marion County has announced a policy of supporting x.
citizen councils that would plan and evaluate public services in their
neighborhoods. Contra Costa's allied services project is organizing
citizen and inter-agency commissions to advise on policy questions. Shelby
County has welcomed the concern and direction of the Citizens' Study
Committee on Priorities in Human Services. The county commissioners of
Blue Earth County have encouraged and are partially financing the Public
Research Council. Composed of 36 local business leaders, the council
is examining the delivery of public and private human services.
Despite noteworthy attempts to integrate human services delivery,
five of the six counties studied lack the financial resources and the man-
power to develop an allied services plan. These are major inhibiting
factors to comprehensive services integration. Only in Marion County
are there currently adequate resources for implementing the Allied Services
Act.
In Blue Earth County, a multi-county unified services.,program is
being considered in cooperation with the state. Orange and Shelby Counties
have grouped human service agencies together for certain purposes, but
have employed no social services planners. Maricopa County has health
planners and a subcontract from the COG to plan programs for the elderly
in the county, but no staff for comprehensive planning. The program
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planning staff of Contra Costa's Human Resources Agency is working on a
coordinated planning process supported by the allied services grant.
Only Marion County--as a result of three years' work supported by an
integrated federal planning grant--has a comprehensive design for pro-
viding public services, including social services. ,
Despite the inability to obtain resources for comprehensive social
planning, many of the six counties are advocates of intergovernmental
and interagency services integration. Marion and Contra Costa Counties
clearly are providing the primary leadership for improved coordination
and planning. In Orange County, the leadership appears divided between
the county executive and the state. In Blue Earth County, the state was
the original force behind the'services integration movement. In Shelby
County the official responsible for coordination provided the impetus,
but the visible advocacy for better services comes from a citizen's
coalition.
Within the six county governments, the impetus for services inte-
gration emanates from county officials and their staffs rather than from
the legislatures. This may be attributable in part to a tradition of
legislative acquiesence to executive recommendations on the administration
of 'services. Although several county. legialatures have health and welfare
com.ittees, the issues involved in services delivery and integration are
not widely understood by members of the legislatures. Only in Blue Earth
and Contra Costa did the team perceive that greater county involvement in
services integration was a priority of the,elected legislative representatives.
The climate -in four of .the counties visited is responsive to the
need for human services integration, and supportive of the search for
solutions. As the individual
ividual findings--Section E--of each county's chapter
indicate-, several activities* have been undertaken in-this regard. They
include joint planning, contracting for services delivery, pilot develop-
ment, coordination with substate planning bodies and state government,
participation with citizens groups, restructuring of human services
agencies, use of general revenue sharing funds and improved integration
of services delivery programs across political, geographical and public/
private lines.
Among these four positively oriented counties some problems do exist
with one or more elements of. the community--state,. private/public service
providers or recipients. In,,all cases they.are relatively minor diffi-
culties which can be surmounted.,
However, in Orange County public .and.private agency representatives
expressed distrust of the intent. of. the state.and HEW to form partner-
GhiPs to improve services. Disruptions of local services caused by the
recent changes in social service regulations issued by HEW and enforced
by the state, were reasons expressed for such distrust. In Maricopa,
County services integration is destined to .proceed on a regional basis.
County officials believe they are subordinated inequitably to the state
and outnumbered by the surrounding towns on the Council of Governments.
The NACORF team concluded that-county agencies should be the prime "
sponsor of allied services -in,three of the counties. In two counties,
-175-
consortiums should act as the prime sponsor and In the sixth a multi-
county regional approach Is proposed.
3. EFFECTIVENESS OF THE COUNTY GOVERM0jT STRUCTI,
The ability of a county to effect the integration of huma
is Inextricably interwoven with its governmental n servicesstructure, That structure
Is dependent on the amount of self-determination granby the state
governments. Local self-determination, then becomested an indispensable
requirement for counties X
to respond creatively to problems In human ser-
vices delivery.
For example, Marion and Marico Counties lack home rule. The
Indiana and Arizona constitutions mandate that their counties must provide
certain services, impose debt ceilings or other
to raise revenue limits on their ability
I and require state legislation to change the organiza-
tional structure of counties.
In Maricopa Count I y almost half of the total county budget consists
of expenditures mandated by the state--limiting its options. Compounding
the problem in Marion, the public health and -public welfare authorities
have independent state statutory authority to operate in the county.
minatanion
represents another variation on is the governmental self-deter-
n continuum: it lacks home rule
'8POlis into one unit Of general Purposeyet governmentconsolidated withIndian-
,
A second variable in determining county effectiveness is the 6tructure
for human services delivery Vithin each county's basic governmental
structure. For example, Contra Costa County, although without formal
hOma rule, has organizational flexibility. The California statute all
4 county to structure its administrative agencies. Thus Contra Costa
County has a strong, centralized human resources department
all of the county's human services divisions. However, the containing
combination
of a strong human services agency in a county without home rule is the
exception.
Whether or not county governments have identified executive'respon-
sibility and authority clearly also can affect human services integration.
Th'a four counties in XACo",
ex s study having single executives--two
executives and two county managers--demonstratedelected
caactto
make timely decisions than the two counties with Pluralgreater execputivey s.
counties in the latter category--Shelby and Blue Earth Both
single executive forms Of government. --are considerik. ng
INT I ERGOVERNMENTAL AND INTERAGENCY RELATIONS
The fragmentation of human service programs is one proof tha tgetting
two governments, or even two agencies to act in concert is difficult.
Service providers complained that each administrative level adds its
W -,!il,
.-176-
interpretation, expectations, funding stipulations and reporting re-
quirements for public programs until the hopes for helping people are
smothered in a tangle of red tape.
Counties have working relationships with other governmental units
and with private agencies on many levels, but the NACORF team found
relatively few relationships were utilized to advance comprehensive
planning and coordination of human services.
nt -Cit J
Cou Y Y .
Relations between the six county governments and the major cities
they surround, are marked,by the recognition that their human service
" problems are mutual and solutions must be cooperative. The cities and
counties have sponsored program innovations together, have contributed
funds to child care and other social service programs, and have engaged
In cooperative studies of such issues as centralized computer systems.
Although some ill-will exists between one county and city, the cooperation
between the others generally seemed to be limited by the resources
mailable to them and by lingering rigidities in their governmental
structure. The team noticed that the structure of corresponding city
agencies has been a significant factor to counties reorganizing their
human services agencies.
RM
County-Regional •
County officials are invariably members of multi-county regional
planning bodies. All six counties are members of an established council-
of governments (COG), a comprehensive health planning council (CHPC) ,
and a cooperative area manpower planning system organization (CAMPS),
with one exception--no COG exists in the Orange County, New York area. In
addition, several of the counties are also members of state development
districts or mental health planning commissions.
The test of 'a regional planning body's effectiveness is whether
Its priorities are followed by service providers. During the study only
-"� one regional body was successful in establishing objectives for a human
service. That was the CHPC report to Memphis hospitals for the Shelby
County area designating the neighborhoods in which an increase in the
tau=ber•of hospital beds should occur.
The Memphis-based Comprehensive Health Planning Council is one of
the oldest councils of its kind in the country and has acquired consid-
ernble strength. Still, one local observor said this CHPC rarely con-
sidered it worthwhile to stand in the way of local proposals for federal
health funds, regardless of how they might duplicate or fragment existing
torvices. In several areas, the council seems to have achieved what
coordination it can effect. with its review-and-comment, authority and its
study-and-report capability.
W'u�Y ¢
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In the research counties not many COGS are venturing into the human
services arena. One exception is the COG for the Shelby County area
which--with the encouragement of the county--this year agreed to admin-
ister a youth services system for the region, to take responsibility for
a county aging project and to promote the development of a regional
data system.
Each of the six counties is in some specialized state-designated
region, for economic development, regional planning or area manpower
planning. Two of the states, Minnesota and Arizona, have plans to utilize
these regional designations for the delivery of human services, in
accordance with recent state laws integrating human services.
V Minnesota's unique law encourages the formation of regional human
service boards—including giving the boards limited taxing authority.
It allows them to control how state funds are spent in the region, and
requires that local officials and consumers be represented on the board.
The Arizona statute consolidated eight social service agencies into a
Department of Economic Security, and designated substate regions. It did
not provide for local consultation or self-determination.
County-State
Of the six states, only Minnesota is developing a system for planning
for the total range of human services. An BE14 demonstration grant is
making the effort possible. Arizona recently received an allied services
grant to coordinate its new social service department with its health
department and to plan one-stop service centers for substate regions.
The state welfare department in New York is working closely with the
Orange County Welfare Department in an experimental effort to determine
whether the state should absorb county welfare functions.
In several counties, distrust of the capability and consistency of
state government was expressed. In general, relations between county
and state human services administrators are distant, even though two of
the six counties are seats of their state capitals. As an exception,
there is potential for a state-county partnership in human services in-
tegration in Blue Earth County, Minnesota.
Although there were variations on the theme, the view persists that,
at a •minimum, the federal government should work directly with cities
and urban counties in their role as prime sponsors. States would have
primary responsibility as program sponsors for the non-urban areas.
County-County
The potential for cooperation and Joint agreements among neighboring
counties depends on relative population size, the extent of regional
planning efforts, previous cooperative experiences including those in
human services delivery, and, to some extent, whether programs such as
welfare are state or county administered.
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Four of the six counties constitute the populatioh center of their
regions. ` Maricopa is both a single county SMSA and a substate region.
Blue Earth participates with various combinations of surrounding counties
in specific service efforts--an asset to future, more comprehensive in-
tegration. It is also involved in several general multi-county and
substate planning districts--a liability- in developing one substate
services integration plan.
County-Voluntary Agencies
Administrators of voluntary; non-profit human service agencies and
county officials each understand the responsibilities and restraints
imposed on the other. The distinction between voluntary and public agencies
has blurred in recent years as non-profit human services agencies have
turned to service contracts- f rom governments to provide more programs
than their endowments or their share of'United Way campaigns made possible.
With the exception of some board members and staff *of private agen-
cies, in Shelby County, the United Way agencies in the counties visited
do not seem to advocate such services integration changes as centralized
data collection, performance accountability and funding by.priority.'
United Way agencies do not always have uniform positions on services in-
tegration issues. In some situations, the point of view of a non'-profit
agency can be more accurately predicted by considering it part of a
publicly administered services program. 0
However, on the related issue of government funding for human ser-
vice programs, the private agencies in Shelby and Orange Counties united
to petition their county governments to allocate substantial percentages
of general revenue sharing funds for human services.
Count -Federal
The six counties view-federal regional offices as'vital to services
integration in relation to both program support and transfer of program
information. Services integration representatives from HEW regional
offices participated in three site visits to research counties. Due to
its large Model Cities Program, its integrated planning grant and other
demonstration programs, MarionCounty -enjoys close relations with regional
administrators of several agencies. In Contra Costa County the allied
services grant and the continuity .of federal staff ,in the San Francisco
region are two factors encouraging intergovernmental cooperation.
C&PABILITIES 'FOR HTIAN' S' E'RVICES.DATA COLLECTION AND MANAGEMENT
Five counties have computer capabilities b6yond the .record-keeping
and payroll-preparation stage. The exception id'Blue Earth C*ounty; the
34141lest. of the, five, only, liarion County has significant social indi-
cators on line. Althotigh- it has sevdr:al-.:large computers, more capacity
is required. Orange County hds one small 'computer which is underutilized.
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One indicator of a computer system's sophistication is whether its
programmers are able to utilize available packaged programs, based on
manipulation of census data. The NACORF team observed that three of
the counties have this capability while two, Orange and Shelby, do not.
Orange County has more information about welfare clients electron-
ically processed than the other counties. As a rule, whether the welfare
is administered locally by the county or by the state, only enough data
is collected to process assistance checks.
Some of the counties have participated in special projects relating
to the collection of social data. Both Maricopa and Marion Counties
have participated in NEEDS (Neighborhood Environmental Evaluation and
Decision Systeml a federally funded program now phased out. Minnesota
will begin implementing a Welfare Information System in Blue Earth County.
Scheduled for state-wide implementation by mid-1974, the system will
provide welfare client information at first. Subsequently, social ser-
vice and health information will be included as well. In addition,
Maricopa, Marion and Shelby Counties are sites of computer assisted
health management projects.
The team found that the. degree of computer -utilization lags behind
the overall level of human services coordination. This lag exemplifies
the incomplete nature of a county's services integration efforts in that
standardization among public and private human services agencies does
not exist. 0 0
Standardized computer programs must be predicated on comprehensive
planning and evaluation of service delivery programs. Without a compre-
hensive plan for integration of human services, application of computer
technology and systems concepts is restricted.
To illustrate this point, a natural component of a comprehensive
computer based information system for human services would be a centralized
client data exchange. The desirability of a client data exchange for
public and private agencies has been discussed in several chapters. Yet
in none of the six counties have the various public human service agencies
cooperated with each other or with private agencies in (a) producing a
comprehensive directory of services available to citizens, or (b) estab-
lishing a central information and referral service. Several such efforts
are in evidence among private agencies, but even these do not seem to
provide one-stop current information. Even if the resources were available
to implement the necessary systems technology, considerable time and
organization would be necessary to prepare a favorable climate for a
client data exchange system. Even more time would be required to teach
users how to operate and benefit from such a system.
The status of data collection and management information in each
county at the time of the site visit is summarized as follows. Marion
and Contra Costa Counties hope to develop management information"—systems
for human services,-, and have prepared applications for federal funding
to meet their needs. Maricopa County is automating data on public health
services rapidly, but there is little coordination with other human
180-
services. Orange County, 'which has some welfare client information com-
puterized, is waiting to determine if the state will take over the welfare
system before considering further applications. The human service agencies
A and research groups with strong computer units in Shelby County are un-
coordinated. However, the COG recently agreed to.examine the possibilities
of a regional information system. Blue Earth County will be the pilot
for implementing the Minnesota Welfare Information System, which is
forseen as a comprehensive client data system, excluding education.
ow None of the six counties has the resources to develop data collection
and management programs to complement their proposed activities to im-
prove services integration. This is true even in 11arion County, although
it has implemented components of an information system and has the potential
to utilize computerized data in managing`human services.
Based on counties' capabilities and the importance of data collection
to the planned, integrated delivery of human services, the research
team recommends the following to HEW.
0
The efforts of Marion and Contra Costa Counties to utilize infor-
mation systems to improve human services delivery could be of national
significance. They deserve to be studied and supported further.
The substate region including Blue Earth County is a promising
area for human services integration. Consequently, the effect of the
state welfare information system* on this rural area should be researched.
0 The most promising integration strategies involve utilizing infor-
mation system technologies currently unknown to most communities. They
have little information on recent research result's that could be valuable
to them. Planned technical assistance will be essential if localities
are to understand what is available in the information field and which
choice would be optimal in each separate circumstance.
C. SUITABILITY OF THE PROPOSED ALLIED SERVICES ACT TO SIX COUNTIES
This section describes the principal provisions of the allied ser-
vices legislation and examines their 'relevance to the six'diverse counties
participating in the research project. There is emphasis on the steps
necessary to initiate integrated services planning, the incentives to
local participation 'in the act, and potential applications of an allied
services plan for a substate region. The NACORF research team found
that the proposed Allied Services Act of 1972 is not entirely the piece
of legislation the six counties would draft, if given the opportunity.
1. STATE PRE-EMINENCE
Under provisions of the proposed act' each governor will decide whether
thatstate will participate in the allied services effort. Positive action
by the governor is required before localities within the state have the
option of participating.
In most of the six counties there is doubt that the states have
the will to lead a comprehensive services integration program. Shelby
County has received few indications that its state government is in-
terested. Officials in Contra Costa, Marion and Orange Counties do not
view their states as opposed to the allied services concept. Generally,
they believe that significantly greater interaction than in the past
between their governor's office and the separate human services agencies
will be necessary before their states are prepared to implement allied
services.
It is highly passible that four of the six counties could be- ex-
cluded from participation because the initiating role currently belongs
to the states.
2. SUBSTATE REGIONALISM
The six counties in the study are not opposed to utilizing multi-
county, substate regions for certain functions related to human services,
such as data collection. More positively, two of the counties have
begun to experiment with the regional approach. In the Shelby County
area the COG will administer a new comprehensive youth services system.
In Blue Earth, a regional human services board is being planned under
the impetus of a unique state law which grants that board the authority
to plan, fund, deliver, or contract for, services on a multi-county
level. However, the remaining four research counties are not as en-
thusiastic about the potentials of delivering or planning for human ser-
vices on a regional basis.
I
Once a governor decides that a state should participate, the first•
step is to "divide the entire state into distinct areas for the purpose
of administering local allied services plans. . ."
Each of the six counties is presently within a state-designated
development or planning district. However, only Arizona and Minnesota
have decided that these jurisdictions will be used for human services
planning, and even these states have not yet reorganized all state human
services to conform to the substate regions.
Counties agree that regional approaches are appropriate for some
public services, such as water pollution abatement. Since human services
are provided directly to people, responding to client feedback is probably
the single most important determinant of a quality program. Most admin-
istrators interviewed, including many from cities and states, believe
that counties are often the best unit for dealing with human services.
They are usually large enough to encompass population centers, yet small
enough to be neighborhood-oriented. Counties are not only appropriate
units to deliver human services but they are also the level at which
comprehensive planning should take place, since they are most likely to
receive citizen input. Both services delivery and planning roles should
be viewed in relation to regional characteristics including site, client
population and intergovernmental structure.
-182-
Three counties in the study have an additional difficulty accepting
the regional approach to human services issues because each is the only
urban county in its region. Their human service requirements differ in
aire, scope and substance from the less urban counties surrounding them
that have fewer problems and services.
3. THE FINANCIAL INCENTIVE
The allied services legislation provides a new source of money for
states and localities. It authorizes HEW to make grants to states which
submit substantial allied services plans. The grants may be used either
to prepare the plan, or to administer an approved plan. States may make
subgrants to localities to develop their own allied services plans. Such
WN planning and implementation grants would cost $20 million in the first
year of operation.
Each of the six counties has been searching for resources to expand
itb human services planning capability. Unquestionably, a prime attraction
of -the allied services legislation to them is the possibility it repre-
sents for funds to initiate comprehensive planning-,
4. PROGRAYMATIC INCENTIVES
Essentially, the act is enabling legislation, authorizing states
and localities to employ techniques to facilitate the integrated delivery
of HEW programs.
Prior to the site visits only a few people in the six counties had
studied the act in depth and were familiar' with its' assets and liabilities.
Nonetheless, due to the teams' briefing, it was possible to discuss
program incentives with public and private human service planners and
9M providers.
Later, the following analysis was made of these incentives including
their appeal to the six counties.
A. Waiver of Program Requirements
The allied services legislation authorizes HE14 to waive statutory
or regulatory program requirements which states and localities certify
impede the implementation of their allied services plan. The bill pro-
vides that waivers may be obtained for requirements concerning state-wide
and single state-agency administration, as well as other technical and
administrative requirements not specified.
The state-wide provision is not crucial since a ceiling is imposed
by HFV! on the open-ended funding of public assistance titles. The single
state agency requirement would be appropriate only to 'state allied ser-
vicQ6 Plans. Potential applications of this waiver authority were not
self-evident to the human services principals in the six counties visited.
When the act passes, local public officials and human services adminis-
trators will better appreciate the waiver provision.
b. Transfer of Funds
The 1972 act permits transfer of up to 25 percent of the funds of
certain HEW programs to others, thus providing states and localities
with a new flexibility in meeting their most pressing needs or expanding
their most efficient programs. Funds eligible for transfer are those
designated for HEW programs included in an approved allied services plan
and currently available for spending by a participating state or local
agency. However, funds from seven categorical programs are listed as
nontransferable, including the five public assistance titles which must
be included in allied services plans.
. Currently, many communities have programs designed years ago for
conditions which have since changed. Although the transfer of funds
provision was developed to simplify program changes, it may only be
effective in situations where little controversy is involved.
Transfer of considerable amounts of program money among agencies--
public or private--is unlikely. Communities rarely develop effective
sanctions against those local agencies which waste money from Washington.
A .permissive provision in the Allied Services Act probably will not alter
.this.
The transfer of funds authority is most likely to be invoked by a
large agency such as a county health department, in order to transfer*
funds among its programs. A large agency is best able to relocate dis-
placed staff, and intra-agency shifts would not affect its existence.
However, even large agencies may be reluctant to identify their least
effective programs for a year or two 'of funding transfer under allied
services, fearing that once a program is exposed as marginal its funds
eventually will be withdrawn.
The NACORP research team observed that fund transfer illustrates a
basic services integration problem: bow to move from the autonomous agency
concept toward planning for community-wide services delivery. The
transfer authority,althoufji helpful to particular agencies or program
areas, is uniquely suited to accomodate a comprehensive services inte-
gration strategy. In the short-term, localities and states may' tend to
focus narrowly.
C, Consolidated Planning Grants and Joint Funding
The allied services legislation permits states and localities to
apply for'the consolidation' of existing planning grants made by HEW
agencies for programs included in allied services plans, notwithstanding
the provision of any other law.
-184-
There are only three or four HEW planning grants in most of the
oubstnte. regions encompassing the six counties. The regions have 314(b)
r.o"..,rehensive health planning grants--perhaps a study of health delivery,
or a grant for planning services to youth or the elderly. Marion County
Already has consolidated its federal planning grants, with minor partici-
ration by REW, under the "integrated planning grant application" guide-
lines Ines of the Office of Management and. Budget.
Y
f additional human services planning resources were available to
co=unities, the opportunity to consolidate them with related, existing
grants would be welcomed. Until then localities may not consider it
worthwhile to consolidate grants for which the funding and reporting
procedures, however ponderous, already have been established. If the
pranto to be consolidated are administered by different local agencies,
delicate negotiations affecting agency autonomy first must be completed
successfully.
kn application to consolidate planning grants is most likely to be
received from the agency designated to prepare the local allied services
plan. This probably would occur in conjunction with a request for an
allied services planning grant if that agency happens to have another
HEW grant to consolidate.
Joint funding of existing service programs faces similar inhibitions.
However, the availability of additional funds for services, and the need
to design the administration and funding of new programs, are certain
Incentives to joint funding. Some local service providers have prescribed
joint funding as a cure for the multiplicity of funding arrangements,
eligibility and reporting requirements and local share restrictions which
nor ccompany federal grant programs*
Joint funding authority is a unique incentive in the act since any
federal human service, program may be included. It recognizes a fact of
life important to local elected officials. That is, the bulk of the
coney spent for health, social services and education at the local level
comes through categorical programs which are tightly regulated and con-
for= to their individual 'administrative andfunding patterns. Ele6ted
officials have little or no control over these programs in their current
(OM and set little opportunity or encouragement to allocate human services
funds on the basis of program needs 'and priorities. Participating in
services integration , is potentia'lly beneficial in that it would allow
A significant degree of priority ordering, a,would create an atmosphere
ry .in utlich a broader community focus on human services planning and delivery
to encouraged.
County officials expressed considerable interest in coordinating
1174cific health and welfare projects with manpower, juvenile justice or
64nior citizen programs also under their administrative sponsorship.
indicated it is easier to integrate, for example, �a discretionary
"IfAre program with a discretionary manpower program than with cate-
90tical welfare program.
The joint funding provision is appealing to county officials, al-
though its application alone might not further the original legislative
intentions--including the coordination of the public assistance titles
with other human services.
The impetus to improve a community's human services program capability
must be considerable to overcome the inertia of the status quo. Whether
the allied services legislation provides sufficient incentive for that
impetus remains to be seen.
5. ConRDINATING THE PUBLIC ASSISTANCE TITLES
For participation through a state plan the allied services legis-
lation requires that HEW's public assistance programs--Titles 1, IV-A
and B. Xf XIV and XVI of the Social Security Act--be coordinated with
each other; with any other HEV human seri?ices programs so designated by
the secretary; and with a minimum of three additional human services
programs selected by the participating substate area. In determining
the three additional programs, communities are encouraged to choose from
a list of nine HEW programs, excluding public assistance.
Fqr their part, local welfare administrators seem plagued by a
variety of functional, client-eligibility and regulatory problems, leaving
them with little time or energy to coordinate programs with other community
agencies.
Generally, public and private administrators of human service.pro-
grams are well aware of the recent funding coiling and series of restrictive
regulations proposed or imposed through the public assistance titles.
Several had negotiated contracts to provide services to welfare recipients,
with county, city, United Fund or other local money donated in lieu of
the state's share of the program crests. These agencies are affected
directly by the recent restrictions, and expressed distrust of HEW's
intention "...to restore dependent individuals to a status of personal
independence, dignity and economic self-sufficiency."*
Ironically, the act asks localities to help integrate the public
assistance titles with community human service programs at a time when
recent restrictions have reduced the flexibility of the titles and when
the local agencies which worked most closely to fulfill the titles' objectives
are disenchanted.
G. ROLE OF THE LEADING AGENCY AT THE SUBSTATE LEVEL
The act requires that one agency be designated to assume leadership
in preparing and implementing the local allied services plan. Priority
ti
Section 2.(a)(1), S. 3643, "Allied Services Act of 1972."
'H � '
should be given, as the act mandates, to an agency designated by the
JocAl chief elected official or officials, acting in concert with other
co=unity interests. If the local leaders are unable to select an agency
with the capacity to carry out the plan, a public or private agency can
then be designated by the governor. Both this option and the priority
mandate should be maintained in the legislation.
In three of the six areas, the NACORF team detected a consensus on
which public units should provide leadership in allied services. in the
others, perhaps the elected officials will be able to agree on which
agency should assume the leading role when the legislation becomes a
reality. The choice is less apparent in these counties at least in part
due to a lack of focus on the Allied Services Act or on services inte-
gration strategies.
Support for the leading agency from other public and private human
service providers and consumers depends not only on its established pre-
eminence but also on the resources available. Resources stemming from
the act seem meager when balanced against the problems present in many
communities.
Local agencies probably will join the allied services process initi-
ally, to make certain that no important self-interest is threatened.
Whether many will participate in developing a plan that will change their
well-ingrained patterns to coordinate more closely with allied programs,
to questionable. Agencies which refrain from participating avoid the
threat of having their objectives questioned, their efficiency scrutinized,
and the possibility that 25 percent of their programs funds might be
transferred to other agencies.
Unless substate allied services agencies are supported consistently
by elected officials, their ability to obtain substantially greater
interagency coordination--given the resources contained in the allied
aervicee legislation--is slight.
RECO1.11NENDAT IONS
Recommendations to HE14 concerning the proposed Allied Services Act
of 1972 and the department's role in services integration flow from
findings of the status of human services integration in the six counties.
AA noted previously, the act is not entirely the piece of legislation
the six counties would draft, if given the opportunity. Recommendations
to improve allied services operations in the research counties are also
offered.
The first four recommendations are proposed as amendments to the
&111ed services legislation; the remaining six concern implementation of
the program after enactment.
-187-
1. STATE PASS THROUGH
A provision should be added to the act permitting 11EW to approve
and support local allied services plans when that state does not .choose
to participate or moves too slowly in developing the state plan.
Four of the six counties detected little interest in services in-
tegration on the part of their states, and are not confident their
states would participate through the allied services legislation.
Local participation in nlli.ed services is to be voluntary. Its
approach is well suited to localities which have devoted thought and
energy to the problems of human services delivery. They will be able
' to take advantage of the act ir..mediately. It will have the greatest
impact on localities with several eligible programs and where the
greatest fragmentation exists. If, localiti.es are able to participate
only when the governor decides the state will., those best prepared or
those in greatest need could he excluded arbitrarily. Counties recom-
mend that the initiative to develop services integration plans should
pass to local elected officials if governors do not act within a reason-
able length of time.
2. GREATER STATE RESPONSIBILITY
The intent of the proposed act to provide a larger role for states
in coordinating human services is necessary to redress the present im-
balance in our federal system. The act requires improved coordination
of specified categorical programs which are either directly administered
or coordinated by state agencies. With this increased authority should
come increased responsibility.
Under the current provisions of the act, a state allied services
plan could be compiled from the local plans--simply as an organizational
exercise--and could be forwarded for federal approval without a commitment
from the state to develop a capacity to lead the state's services inte-
gration. Indeed, a state could play a minor administrative role in the
certification of local plans and leave untouched the whole question of
federal, state and local roles in better services delivery.
The allied services bill must be more ambitious in requiring the
changes necessary to foster a comprehensive planning and services delivery
strategy at the state level.
3. CLARIFY THE ROLE OF SUBSTATE REGIONS
Governors choosing to participate are required to divide their
stntes into regions to administer local allied services plans. For sub-
stnte regionalism to be optimal, all state human services agencies should
be mandated to plan and deliver services and collect data in clearly
jojined coterminus regions. Decision-making should be decentralized to
the regional levels, and comprehensive, inter-regional planning among
state adoinistrators, local elected officials, representatives of ser-
vice agencies and consumers 'should be required.
If the act is designed to promote substate regionalism, stronger
requirements and incentives must be included to encourage states to re-
organize their human service agencies into common regions. The legis-
lation presently does not require local plans to be region-wide.
A related issue, also unresolved in the legislation,. is how the
allied services plan meshes with other regional "comprehensive" plans.
is the allied services process to take precedence over the comprehensive
health planning process established by section 314(b) of the Public
Health Services Act, as amended? How is the allied services plan to be
coordinated with regional plans funded by the Lau, Enforcement Assistance
Act, or with manpower plans developed by Manpower Area Planning Councils
or Ancillary Manpower Planning Boards?
4. LONGER GRANTS
To better prepare state and local allied services plans, federal
planning and implementation"grants should be authorized for at least
three years, and preferably -five.' The compartmentalization of present
hunan services programs is institutionalized. Only a rare community can
achieve substantial services coordination in the two year period for.
uitich grants are authorized in the present legislation. Full implement-
-
tation of local allied services plans probably will take longer; A five,
Year process allowing for testing, evaluation and modification of the
initial plan, is more desirable.
ADDITIONAL RESOURCES
The proposed Allied Services, Act of 1972 lacks Sufficient incentives
to encourage participation by local units of general purpose government,
is or by human service agencies. 'Further, it does not insure the prepara-
tion Of local allied' services`plans which would achieve a greater degree
Of services coordination.*.
More flexible funds for human services are required to create
e, in-
teatives and to reward participating 'agenicies- which substitute stream-
IlAed comprehensive programs for the current duplication and inefficiency
characterizing the services delivery system.
At a minimum, HEW'ih6uld guarantee that particiipants in approved
Iliad services plans have preference in receiving federal funds for new
Services.
M
0
61--
4",
A major problem with the act's services integration strategy is
pent in localities
-
that most health, social services and education funds s
are beyond the control of those elected officials given greater respon-
sibility for coordinating HEW programs under the act. Thereforethe
lead agency, designated as coordinator for allied services, should be
granted discretionary spending powers over all categorical programs in-
cluded in a review and comment process. Similar to A-95, the review
process would involve all human services programs proposed for federal
funding in an area.
6. MODEL PLANS FOR ALLIED SERVICES
Since application of the act will vary in many local areas, HEW
should prepare several models to guide communities in preparing their
allied services plans. The models should range from the obvious to the
intricate, to accommodate comnmitics with a range of human services
planning and delivery characteristics. They should include the state
role in services delivery, absorbing the more comprehensive developments
at that level, such as Minnesota's new human services act and its in-
volvement with substate areas.
The recent restriction on the public assistance titles of the Social
Security Act have embittered Many local human service providers, particu-
larly since the existing flexibility in administering the titles seems
to have been eliminated. HEW should prepare detailed models clarifying
the federal mandate that these titles constitute the heart of local allied
services plans. The models should illustraVe in detail how these titles
can be coordinated with each other and with other human service programs.
7. TECHNICAL ASSISTMCE FROM HEW
Considerable technical assistance from HEW is necessary for the
success of local allied services plans. Communities and states are not
as prepared to assume responsibility as the act would indicate.
One incentive in the legislation provides that HEW regulations in-
hibiting services integration may be changed with HEW's approval. For
this incentive to be fully realized, HEW agencies must develop an in-
creased awareness of and sensitivity to local community needs--and, the
capacity to approve changes quick3 y. HEW also must play a major role in
making local plans a reality and in overseeing the coordination of state
and local plans.
Federal officials familiar with localities preparing allied services
plans should decide if the plans represent genuine attempts to improve
services delivery.
If it is to contribute to services integration, federal technical
aid must be tempered. First, there must be a change in governmental
power relationships so that states and communities are allowed discretion
AA I
-190-
u:d flexibility in designing human services strategies. This increase
in responsibility should encourage state and local governments to take
an increased interest in program development and management. Second,
it should be realized that although services integration is better
usx:erstood technically by its creators--the federal planners--than by r
swat states or communities, the federal government should provide guidance ;
rather than domination.
In each of the federal regions; teams of specialists from the human
service agencies should be formed to promote allied services integration & '
exclusively. The teams should act as catalysts in developing plans of
participating states and localities. The teams would also approve or
disapprove plans, coordinate federal technical efforts to implement those
approved, and advise local allied services projects of changes in federal e'
policy and funding which might affect their efforts.
i
6. PRELIMINARY PLAN ..;,
Prerequisite to an effective allied services plan is an effective
process including commitments from elected officials and other human
service planners, broad cooperative planning, interagency negotiation,
public education and community acceptance. To reserve a separate status
for the final allied services 'plan, the initial application should be
�. designated the "preliminary-allied services plan."
t. I'N'FORMATION SYSTEMS DEMONSTRATIONS
HEW should provide special demonstration funds to'$everal local i
allied services sites interested in designing human services information M„
systems, or components of potential systems. Most of the six counties 'u
studied currently utilize computers but new information programs designed
for increased services integration activities will require additional
financial support.
Hopefully communities undertaking human services integration will
perform community-wide, program assessments of resources, needs, goals,
functions and procedures which are also prerequisites for computerized
information systems. Thus, the NACORF research team recommends that HEW
Provide additional demonstration funds to allied services localities
which choose to include computer programs for client data, planning,
tAnagement or evaluation of their human services system.
Two cautions might be exercised; (1) the technology should not
take precedence over the objectives of services integration, (2) HEW
: funds should -not be used to support a system which does not demonstrate
a readiness to tailor its programs to community needs.
,
-191-
,. `*►
10. ADVISORY COUNCIL ON SERVICES INTEGRATION
The integration of public human services is complex since federal,
state, county, city and other local governments are involved. Each
level frequently faces unique obstacles and has a different perspective
from the others but each is vital to the solution of human services. A
forum for the regular exchange of views would be useful. The NACORF
research team recommends that the secretary of HEW form a council com-
posed of state, county, city and other local elected officials to serve
in an advisory capacity on human services legislation.
E.' THE PROSPECT
Effective services integration depends as much on the individual
commitment and skills of the professionals representing-public and
private agencies as on opportunities embodied in new legislation. In
the final analysis, the considerable effort needed to change the frag-
mented delivery of human services requires a willingness on the part of ►
' individuals--from outreach workers to policy* makers--to work for in-
stitutional change.
The six counties have demonstrated a willingness to initiate
extensive services integration. While it its not possible to predict
the degree of success nationally, counties would find the act, as
proposed, useful.
However, the NACORF research team is confident that the act's
impact would be increased significantly by incorporating the recom-
mendations emanating from the counties studied.
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0
In the Board of Supervisors
of
Contra Costa County, State of California
March 12 19
In the Matter of
Authorizing Submission of
Grant Application to U. S.
Department of Health, Education
and Welfare for Allied Services
Project.
As requested by Mr. R. E. Jornlin, Director, Human Resources
Agency, pursuant to letter dated February 8, 1974 from the U. S.
Department of Health, Education and Welfare; and on motion of Super-
visor A. M. Dias, seconded by Supervisor J. P. Kenny, IT IS BY THE
BOARD ORDERED that the Director, Human Resources Agency, is AUTHO-
RIZED to submit a grant application to the U. S. Department of Health,
Education and Welfare for continued funding of the Allied S.ervices
Project in Contra Costa County.
The foregoigg order was passed by the following vote:
AYES: Supervisors J. P. Kenny, A. M. Dias;
W. N. Boggess, E. A. Linscheid,
J. E. Moriarty.
NOES: None.
ABSENT: None.
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc• Director, Human Resources witness my hand and the Seal of the Board of
Agency (2) Supervisors
Allied Services affixed this 12th day of March 1974-
County Auditor- JAMES R. OLSSON, County Jerk
Controller
County Administrator BYE? Deputy Clerk
Charleen K. Travers`
H 24 7/72-15M
r
Truman. Resources 4kgency
CONTRA COSTA COUNTY
Date March 8, 1974 1
To P. McBRIEN, COUNTY ADMINISTRATOR
From R. E. Jornlin, Director
PROTECT APPLICATION FOR CONTINUED FUNDING
SLlbj ALLIED SERVICES
Attached is a letter from HEW inviting us to submit an application for
continued funding of the Allied Services Project. I am requesting g your ends, so
approval to submit the application by listing as an item on y g
that we may include with the proposal to HEW a Board resolution indicating
concurrence to the transmission.
REJ:ask
Attachment: Letter from HEW
RECEIVED
RE ,
MAR /Z11974
a.�RK
ib.�r }It ^f i.^y �fr.;�d53'.5 f+,•..r+S?�1�:CX
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DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
OFFICE OF THE SECRETARY
WASHINGTON,D.C. 20201
Mr. Robert E. Jornlin FEB 8 1974
Allied Services Project
Contra Costa County
Human Resources Agency
651 Pine Street
Martinex, California 94553
Dear Mr. Jornlin:
On behalf of the HEW Services Integration-Targets of
Opportunity Task Force, I am pleased to invite you to
submit an FY 1974 continuation application for your
project entitled "Design of Pre-Test of the Allied
Services Act of 197211r Grant # 12-P-55888/9-01.
Enclosed you will find three copies of the necessary
application forms. You should note that a number of the
items in the application already contain preprinted
information. Particular attention should be drawn to
Part IV of the application which contains instructions for
the narrative portion of the application.
TYe due date for the application is March 15 , 1974 . Three
copies should be submitted to Fernando E.C. DeBaca, . the
Regional Director for the area where your project is
located (see attachment for address and :telephone number) .
..A
In addition, I would like to alert you to a site visit to
be conducted by an HEW regional "evaluation" team, in March
or early April. You may expect to be contacted shortly
about it. Also, personnel from the Human Ecology Institute'
of Cambridge, Massachusetts may be visiting you on a
"data gathering" assignment in the next month or two
(for many of the Services Integration grantees , the
visit by the Institute has already occurred) .
Questions regarding the site visits, the application process
or related matters should be directed to your HEW Regional
Director.
Your cooperation in assisting us to maintain the
review schedule we have established will be appreciated.
Sin ely yours ,
Don Wortman
Deputy Assistant Secretary
Enclosures for Program Systems
•• i - . REGIONAL DIRECTORS
Scott Tuxhorn
_ Robert Fulton- Acting Regional Director
Regional Director Region VI
Region I Federal 1114 Commerce Street
John gitzgerald Kennedy Dallas , Texas 75202 -_-
Building
r Government Center
Telephone: 214-749-339
Room 1500
Boston, iassachusetts 02203 Max ,filo Mills
617-223-6831 Regional Director
Telephone: Region VII
• Federal Office
B�rnice L. Bernstein Building
601 East
Regional Director Kansas Citty,Yr1lissouri 64106
5 Region II
Federal Building Telephone: 816-374-3436
26 Federal Plaza
New York, New York 10007
Rulon R. Garfield
Telephone: 212-264-4600 Regional Director
Region VIII
Gorham L. Black Jr. Federal Office Building
Room 11037
Regional Director 1961 Stout Street
Region IIIDenver, Colorado 80202
P.O. Box 13716
3535 Market Street
nia 19101 Telephone: 303
Philadelphia, Pennsylva -837-3373
Fernando E. C. DeBaca
Telephone: 215,597-6492 Regional Director
Region IX
Frank J. Groschelle Federal Office Building
-Regional Director 50 Fulton Street
Region IVSan Francisco, California 94102
Peachtree-Seventh Building
50 7th Street, N.E. Telephone: 415-556-6746
Room 149
Atlanta, Georgia 30323
Bernard E. Kelly
Telephone: 404-526-5817 Regional Director
Region k
Richard E. Friedman Arcard Building
1321 Second Avenue �
Regional Director Seattle, Washington 98101
Region V _
Drive
300 S. Wacker Telephone: 206-442-0420
Chicago, Illinois 60607
Telephone: 312-353-5160
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In the Board of Supervisors
of
Contra Costa County, State of California
March 12 1974
In the Matter of
Acknowledging Receipt of
Evaluation Report on the
Allied Services Project
in Contra Costa County.
This Board having heretofore approved an agreement with
Genevieve Carter, MSW, Ph.D. , Social Research Institute,
University of Southern California, for provision of professional
services to the Allied Services Project of the Human Resources
Agency, including independent evaluation services as required
by the U. S. Department of Health, Education and Welfare; and
Mr. R. E. Jornlin, Director, Human Resources Agency,
having appeared before the Board this day and presented a ccpy
of "Evaluation Report for the Contra Costa County Integrated
Services Project - December, 1973" prepared by Dr. Carter; said
report being on the first-year effort of the Allied Services
Project, including a descriptive model of the project, identi-
fication of barriers during the planning and developmental phase
of the project, and the evaluation component;
NOW, THEREFORE, on motion of Supervisor A. M. Dias, seconded
by Supervisor J. P. Kenny, IT IS BY THE BOARD ORDERED that afore-
said evaluation report is hereby ACKNOWLEDGED.
The foregoing order was passed by the following vote :
AYES : Supervisors J. P. Kenny, A. M. Dias,
W. N. Boggess, E. A. Linscheid, J. E. Moriarty.
NOES: None.
ABSENT: None.
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc : Director, Human Witness my hand and the Seal of the Board of
Resources Agency (2) Supervisors
Allied Services Projectaffixed this 12th day of March , 197.L
County AdministratoyAMES R. OLSSO County Clerk
By �u Gr.• Deputy Clerk
L. Kincaid
H 24 5/73-15M
11,
Kuman
{ ,Resources &ency
Date March 12, 1974 CONTRA COSTA COUNTY
To BOARD;Of gUPERVISORS RECEIVED
From R. J nlin, Director MAR/-Z 1974
J. R. OLsSON
Subj AL/LIED SERVICES PROJECT -- EVALUATION so OF SUPE ISORS
IA
f
Af-W-130PUtty J._
I am pleased to present for your information and review a copy of the
evaluation report for the first-year effort of the Allied Services Project
prepared by the independent evaluator, Dr. Genevieve W. Carter, University
of Southern California. The report includes a descriptive model of the
Allied Services Project, identification of barriers during the planning
and developmental phase of the Project, and the evaluation component. I
would like you to note that of the five main objectives and the 20 sub-
objectives, the Project received a rating of 83 out of a possible 100 in
level of achievement. This is an exceptionally high rating for a services
integration project.
Additionally, you will note under Objective I, Subobjective 1, "Initiate
contact Board of Supervisors and sustain," that the evaluator makes note
of the Board's continuing interest in and support bf the Project. This
interest and support reflects the total commitment to integration of
services in Contra Costa County and adds importance to the Project as
viewed by the Department of Health, Education, and Welfare. Additionally,
the endorsement of Model Cities and their continued cooperation with the
Project enhances that commitment. The other related work activities in
meeting Objective I received exceptionally high marks, due primarily to
the management abilities of the Project Director and a small but dedicated
Project staff.
Objective II, which was to develop and organize a structure and process for
integrated services which can be continued after the conclusion 'of the
Project period, also received exceedingly high marks. The high degree of
participation of nine agencies and their department heads within the Project
and the assignment of staff by these agencies to serve on the Allied Services
Project Planning Group and on a variety of Task Forces was the key to the
success of this first-year effort.
The establishment of citizens' participation under Objective III received
marks for a high level of achievement, due primarily to the willingness
and ability of the 25 citizen participants on the Allied Services Commis-
sion. You will note under Subobjective 1 that the evaluator's comments
.indicate that the analysis and recommendations of the Allied Services
, .w er r.rr ... q4 ... .rt w ti .. r w... ..n iw ,. • ... . . . .... ..r ........,.r........0 ..w•+e»rrv�.n. w .. ...
BOARD OF SUPERVSSORS - 2 March 12, 1974 `{
Act prepared by the, Legislative Task Force of the Allied Services Commis-
sion are an "outstanding citizen group product." "•It represents a sophis-
ticated analysis from a local point of view."
Objective IV, to explore and develop plans for an information system which
will eventually serve as an integrated human services data system, did not
receive the same high marks. This was due mainly to the fact that I
directed that responsibility for this development be removed from the
Project and assigned to staff within the Human Resources Agency. This
decision was made because it must be developed on a countywide basis.
Development of the information system has moved simultaneously with the
Project progress. Next week I will be presenting to the Board a report
on this system.
Objective V is the completion of the first-phase planning effort, which
resulted in the Feasibility Study Design which you have already received.
This Indicates that the Project met its time schedule and developed a
good basis for entering into its second phase. Currently the Project is
developing action guidelines and work plans aimed at coordinating delivery
of services in four social problem areas. This constitutes the second-year
Project effort.
xn summation, the Project staff, the allied agencies and their staff, and
the participating citizens should be commended fora job well done. This
work effort is cforthy of continued support by the Board of Supervisors and
the Department of Health, Education, and Welfare.
REJ.ask
cc: Clerk of the Board
J. P. McBrien, County Administrator
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2 . Fti s_'* 4; t, ftp?r� x: k "? �Y3ftt ? 1 t; y May i¢"
tr;�. 1t d .r# e, s.t� t.:T.- ,�.«,}Y w�' s-xS4 �-,�` a.� .a 'nr ".4rtt:, e3.t� sr
RECEIVED
LIAR /2. 1974 �-
r I owrori
OF su IS615
2P Aw
Evaluation Report
for the • .-..... . .. ���
...' `-ContraCosta County- Integrated Services Project.
Prepared by
Dr. Genevieve 4i. Carter
:• University of Southern California
•
December, 1973
9 y
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t .
l
The Contra Costa County Integrated Services Project
- Introduction
This evaluation report is divided into three sections. Section one
presents a conceptual framework by means of describing a series of concepts
and constructs which are central to the service model developed for the
demonstration. Section.two lists and describes barriers identified in the
developmental phase of the project. Comments about alleviation of the
barriers through project efforts are included. Section three presents an
t
assessment of the major objectives to be achieved by the project during this
evaluation period.
This is an evaluative report and does not purport to follow a rigorous
quantative research evaluation design. This latter would have been inappro-
priate for the developing stades of an. innovative demonstration. Special
efforts have been made in Sections one and two in particular to explicate
project experience and learnings which would have utility for decision-
makers concerned with program replication or continuation of grant funds.
Evaluation Summary
As this report indicates, the evaluation of projelrt development at
this stage is strongly favorable. The director and staff can articulate
what they are doing and hoer they are doing the work. Because of this
clarity, the evaluator is able to explicate concepts of the demonstration
model being developed and to identify the list of barriers.
This excellent progress to date.can be sustained if the implimentation
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is carried out with the same level of staff competence, apenc�i participa
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3.
Section I
A Descriptive Model of the Contra Costa County
Allied Services Project
The conceptual model described in this section has been drawn from
project files, observations and interviews with the project director of
the Contra Costa demonstration. The project began with formulated goals,
program objectives, time limits and certain resources. A model for the
operation of the project was not prescribed in the funding guidelines nor
in the initial proposal . In fact, if the dimensions and shape of an innova-
tive integrated services model were already prepared, there would have been
no need for the series of experiments. It is assumed that the govern-
ment made the decision to invest demonstration money for the purpose of
experimentation and exploration of alternative models before moving into
national policy through legislation. It is also assumed that each of
the integrated services projects will be testing somewhat different models.
In presenting a descriptive model for project operations, it is
necessary to'explain the central concepts which are used in developing
the model. The conceptual framework for this model of a successful demon-
stration evolved as the project developed and became stabilized. One im-
portant question raised in most demonstration evaluations is -- what is the
potential for a replication of a successful demonstration?
A demonstration has little value for replication unless the principal
concepts shaping the model developed can be communicated. The model de-
t t y r E
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4.
veloped during this project is presented in conceptual terms and for this
reason can be adapted for use by other communities.
The model provides a Governmental mechanism at county (or district)
level which was initiated to enhance integration of services for selected
target groups during the experimental period. The testing of the model
indicated that this type of mechanism is equally effective for use within
an* organization as well as between organizations. Farts of the model may
be Moved to county level government to provide an arm for local citizen
participation -- such as a Human Services Commission attached to a county
or city council or board.
The essential guiding concepts of the model are listed below:
1. Goal Oriented
When a program is goal oriented it functions to achieve certain
defined end results. It is task oriented -- for example, to re-
duce the incidence of a social problem such as delinquency to
acceptable level . One objective may be to reduce school drop
outs to 50% in two years. Another objecti.ye may be to assist a
quota number of welfare recipients to become economically in-
dependent, to divert 25% of youth arrests from official juvenile
justice system.
2. Intermediate Objectives
The model provides for attainment of intermediate objectives
deemed 'to be an intermediate step leading to goal achievement.
For instance, an intermediate objective may serve to identify
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an integration target and develop a linkage mechanism for this
target or. to bring about improvements in management capability
which can facilitate goal achievement.
3. Flexible Orqanizational Structure
The project model was developed around five organizational units
which did not follow the traditional bureaucratic hierarchy.
The alignment*of the five organizational units was more horizon-
tal than vertical . This allowed for freedom in communication,
feedback and shared authority. This iatter.was essential be-
cause the demonstration project must achieve its goals without
�. authority or sanction -= without "the stick or the carrot." The
rewards for achieving organizational change in this instance must
come through satisfactions and self-commitment, recognition, peer
competitiveness, staff encouragement, etc. The five units were:
project staff, Allied Services Board, Allied Services Commistion,
Allied Services Task Forces, and the Allied. Services planning
Group. These five constitute flexible, viable units which can
be adapted to ongoing community institutions after the termin-
ation of the target. The units are also viable for elimination
and are not readily frozen in bureaucratic concrete.
4. Systems Oriented
Systems concepts have had' a heavy influence on the development
of the project design. Service integration would be impossible
without recognition of the inter-related parts and coordination
necessary to result.in a focused, in-balance service delivery
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6.
- system. From the inception of the project, efforts have been
directed toward a unifying information subsystem -- first to serve
the integration objectives of the Human Resources, Agency. Secondly,
a central information system would have 'the capability for ex-
tension to other human services in the community. For example,
a child welfare tracking information system developed under
a project or Human Resources Agency auspices would have the
capability to service the Probation Department in case management
of Its children. There are probably some 1300 children out of
their own homes in Contra Costa County whose whereabouts and plans
should be known at all times. Health, welfare, correction,
dependency and neglect problems are highly inter-related in this
child population and a prover information system would be a great
support to service integration.
Creating a system of human services out of a non-system is the
central purpose. A systems framework is part of the conceptual
scheme of the model .
5. Other-Systems Conceuts
(a) Integration Target is a subgoal which has been identified for inte-
gration in order to improve staff efficiency, management capability.
and improved service -- i.e. , coordination of home-based services
which vrill prevent unnecessary institutionalization of children
or the aged.
(b) Constraints, furriers are identified as limitations, rules, legislative
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7.
requirements or impediments which control or interfere with
conservative program action. Some constraints such as complex
multiple funding may be amenable to change but some constraints
have "to be lived with" . See.Section II of this report.
(c) Redundancy in a system is expected but can be greatly minimized
through integration efforts. Duplication of functions or overlapping
functions are .key indicators of identification of the new targets
for integration action -- i.e. , the identification of four differ-
ent agencies making home visits to children in the same family
during the same week would lead to a new integration target for .
attention.
(d) Input-Output are popularized concepts but in this instance more
specific meanings are attached. Input for human service delivery
systems generally includes resources such as personnel , budget,
rules, target groups, etc. In this model two additional inputs
are emphasized: (1) technology and (2) a broad community base
of decision-making. Recognition of technology as a priority input
means there is a body of knowledge and there is a range of strate-
gies, tactics and methods required to bring about the outputs in
a .service delivery system. Management does not deliver service --
1
it facilitates the work of the service deliverers who have the
technical know-how of providing human services. Another order
of specialized technology is required from professional staff
who have the skills and know-how for organizing community lay
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8.
.leadership, health and welfare professionals and human-service
organizations.
Local level participation is the other essential input necessary
-for an open system in order that,the opinions and voices of
those to be involved in the institutional chancre (integration
changes) can become a part of the action for inplementation.
Strategies of integration and management development are really
strategies of work-with people. It is theep opla who have to
change and therefore they must be a part of 'the input.
Inputs into a delivery system are more easily quantified and for
that reason analysts and planners are prone to focus their
evaluation efforts on input measures rather than outputs or out-
comes. ,
(e) Outouts and Outcomes are considered as different types of measures.
Output measures are generally viewed as steps or products generated
along the way in order to reach goal attainment. Intermediate
objectives to long range goals are often set up as management by
objectives as will be found in this progress evaluation. Outputs
are products of activities such as minutes and records, commission
meetings, management objectives achieved which facilitate the
mission,of the organization or studies and statistical reports
developed.
Outcomes are not generally-measurable on an immediate basis,
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• 9.
~ especially in innovative projects. Usually there are several
measures from various approaches -- i.e. , social indicators,
consumer satisfaction, decreasing measures of problem incidence,
reaction of community leaders, evaluation of case records,
y
efficiency measures, organizational performance evaluation, etc.
In this instance, the project goals and sub-objectives will be
defined. Both process and outcome measures are generally used
in an evaluation of health and welfare program experiments.
For conceptual clarity in this descriptive model , outcome measures
are more closely identified with process or organizational performance.
Outcome measures are used for assessments of what was accomplished
or to what degree were the stated goals achieved.
6. Market Develooment Efforts
This term is frequently found in recent HE14 material . Tradition-
ally needs and resources inventories have preceded decisions as
to gaps in human service and priorities for community action.
Market devc1opment efforts is a term which follows-a decision or
plan to develop resources. In practice, the prior steps of
community analysis, needs and gaps .have been made. Recommenda-
tions with community or institutional support have already Iden-
tified an order of priority for action.
To illustrate fron this project's experience, the reports of the
four allied services task forces illustrate this notion by
effectively presenting their recc-mmendations and plans for market
.%t
's41
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2, `7�A
10.
development of selected service program to alleviate the priority
social problems in the project community. _
Each task force went through the steps for assessing the com-
munity, analyzing needs for human services, keeping a focus
on priority problems and developing a plan for alleviating selected
social problems. The use of the term market development in
social welfare must not be paralleled with entrepreneur efforts
which lead to competitive economic profits in business. Human
services delivery 'leads to human benefits that include both
social and economic benefits but there is no competitive market
place. Another difference in developmental efforts lies in the
higher confidence placed by business in the entrepreneur long-range
capital investments. There is not the same confidence in capital
. r .
investment programs to develop people. This is generally considered
as consumption rather than investment.
7. Gatekeepers
This is a convenient term used to identify influencers, power
units or obstructors within organizations who can facilitate or
impede the spread of an innovation or a correction which requires
behavioral and/or attitudinal change on part of organizational
personnel . Such influence may be formal (with authority) or in-
formal,. Informal gatekeepers may include persons who hold link-
ages to community based power structure, to policy-rakers or
power holders of wealth --* i .e. , the makeup of the organizational
f,
lI.
units in this integration model gave close attention to the
participation of potential "gate keepers" at several levels and
types. Note the composition of the membership on the Allied
Services Commission of the project which reflects the importance
of attention to the conceptual notion of continuing involvement
of institutional date keepers.
8. Innovation Diffusion
There is now a growing body of knowledge about how research
and demonstration gets from the laboratory ,into the agency or
organization. In its simplest terms, diffusions research tells
f us that innovations will be picked up and used -- if such inno-
vations can be taken a bite at a time (fragmentized) , if the
transmission language is compatable (to,the profession or imple-
mentation) , if the implementors have been effectively in-
volved (through their input) , if the innovation is feasible for
resources. available, and if there are some rewards for changing
f (punishment is not very effective).
Diffusion potential ,then, must be built into the project model.
The following illustrates the application of these principles
of diffusion:
Partializing
A big, broad demonstration program on services innovation
would have been indigestible and frightening to the com-
munity leaders as wel'1 as the agencies. It had to be manage-
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12.
able and encompassable or no one Mould buy it. That is why
project staff and Advisory Groups decided to set some
necessary boundaries by placing a focus on selected social
--
problems within a defined geographic boundary. Introduction
y
of new ideas must allow for partializing the innovation, the
goals, or the target group or segments of the organization.
With a systems orientation, any partialization is always
approached in the context of its feasibility for the total
delivery system.
9. Comnatable Language and Concepts
The bridge between the research and demonstration project and
the organization's use of new ideas (to them, not necessarily
to the field) depends on the communication. There is usually
no greot problem in getting a useable .concept across when the
meaning is made clear. . . The name or label that is assigned to
the concept is another matter if diffusion is to take place.
Local people and organizations have a particular aversion to
new vocabulary thrust upon them.
10. Service Utilization
Under the caption of service utilization are such theoretical
notions as (1) improved client access into the service system,
(2) more effective referral process with continuity and follow
through', (3) reduction of certain delivery functions (i .e. , separate
home visits, duplicated faster home recruitment), (4) more effec-
tive personnel integration which reduces number clients must
relate to (5) continuing assessment of perceived need by agency
' • • 13.
and professionals -- client expressed need and client utilization.
r Effective utilization measures are predictors of services outcomes
in contrast to concepts of client need and demand which offer
y gross approximations for program planning and budgeting.
ll. Cost Efficiency
It is more hopeful to aim for service effectiveness measures before
approaching cost efficiency of alternative services. The latter
is almost impossible with the present state of knowledge. The
concepts of cost effectiveness and efficiency should be included
in the model because there are approximations that are .feasible.
114hen the service unit is definable, when the unit is task-oriented,
and when service personnel investment can be estimated or computed,
it is possible to price the service proqucts produced. Otherwise,
cost effectiveness would likely be computed b larger p Y g r units, such
as by program or sets of functions.
i .
i
i Administrative efficiency measures would be focused on redundancy
i
reduction and information system improvement.
12. Evaluation Component
This- model also includes an evaluation component as Mould all of
the Integrated Services projects. It may differ in its evaluation
design with its two recognized evaluation strategies considered
appropriate fora developing action project (1) formative evaluation
which is more process and performance oriented and (2) summative
evaluation which is goal outcome focused, allowing for a sta-
9
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14.
~ bilization period for the newly initiated health and welfare demonstra-
tion or experiments.
In order to evaluate the task force reports produced by this project,
the evaluator should approach the assessment with some dependable reference
points as~to where this community is, at this time. For example, if the
schools are to take on a service integration demonstration, the technical
staff person had better. know the educational language and stance rather
than rely on some bureaucratic shorthand language or unfamiliar verbage.
In brief, the transmission of ideas to bring about change in a local com-
munity takes place through acceptable language and behavior of the trans-
mitter -- verbal or non-verbal . The linkage person, the integrator, the
transmitter, the technical assistance specialist, the research utilization
agent can do much to facilitate the organizational use of new ideas and
changes. Research has shown that the person-to-person media is most ef-
fective in producing change. As one example, only people can re-program
the input in the middle of a sentence. Research on diffusion has shown
that human conveyor is the most effective agent in transmitting the innova-
tions and in getting organizattions to change and utilize the innovations.
This type of project has provided experiences for linkage persons
to gain an understanding of the purposes of integrated services and to
,
be able to communicate this with influence to their own organizational
units or agencies..
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15.
~ Section II
Identification of Barriers During the Planning and Developmental Phase
of the Contra Costa Project
One o-f the expected benefits from an experiment (or a program demon-
stration) is the uncovering of problems or barriers which interfere with the
progressive achievement of integration serviceA objectives. Too often,
evaluations are limited only to the successful achievements so that subsequent
replications or extensions of the demonstrations must again uncover the same
barriers and errors -- like rediscovering the wheel .
Since. the beginning of the project, barriers to the effective development
ofIservice integration have been emerging. Some barriers are removed
immediately as soon as the impeding situation is identified. Others are
alleviated but not removed while some are beyond the control of the project
operations and must be "lived-with" for the time being.
Barriers create points of interference with project goal attainment.
Barrier removal is primarily the responsibility of the management or project
leadership. However; certain types of barrier removal requ-i.re. a ria j or
external influence such as social policy changes, particularly with citizen
involvement and local government participation. '
Certain concepts from new Federalism, bureaucratic decentralization and
"maximum feasibility of local citizen participation" converge in the conduct
of an integrated services project. Within this framework barrier removal
is a shared responsibility. However, this can happen only as professional
staff facilitates and supports the citizen and local government action.
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16.
In the Contra Costa County integrated services project, the involvement
of local level government, relevant major institutions, program leaders
and representative citizenry have resulted in its greatest strength. The
Project has emphasized the principle of continuing involvement of the
expected implementors.
Goal Hierarchical Framework
Goal 1 Goal 2 Goal 3 Goal 4 Goal 5
Outcome: Outcome: Appropriate Reduction of Social
Reduction Improved Care of School Drop Policy
of Substance Care or JChildren of I Outs Priorities
Abuse Problem Support Working
(drugs, of Needy Mothers
alcohol) Aged
----------- ...»»»»»_I__«.» »i i i i t
Ultimate ' t t (12) Quantitative t = t t
objectives i outcome measures I
� t
(10)
(9)
Long range (8) Oufcome measures
objectives emerging
Inter- (7) Program stabilized
mediate
objectives (6) Intermediate measures
(means or progress
attitudes,
etc.) (5) Functioning model
(4) �Feasibility study
Proximal (3) Inventory of needs
or immedi- and services
ate
objectives (2) Commitment of local govt. , citizenry
(1) Establishing structure
d 1
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17.
?deans - Not Ends _
Service integration is a means, not an end outcome. The Allied Services
demonstrations were developed across the country on assumptions that service
integration would result in greater cost efficiency, improved service
delivery to clients and patients, reduced duplication of service functions
and greater decision power to state and local governments in conducting
their'own social welfare service programs. These constitute intermediate
objectives in the goal hierarchy but the ultimate aim is found in the
impact on target groups or social problems. Integration attainments are
progressive steps along the way to effective impacts on reduction of social ,
economic disfunctioning. --
Evaluation is concerned with the achievement of goals and objectives.
r
If the goals are viewed in a hierarchical framework, it is possible to mark
off steps along the way toward attainment of the formulated goals. The
bottom steps are marked as proximal or immediate objectives. Certain ac-
complishments were given to the projects as part of the guidelines such
as conducting a community inventory of needs. Intermediate steps build on
this and bridge the pathway in reaching longer range objectives. Finally,
the ultimate goals may be reached. The twelve steps along the way cover
that general institutional development necessary before implementation
directed to define social problems.
For example, the end goals for reduction of substance abuse may be
defined by setting levels of addiction which leaders of a community agree
should be tolerated. because complete eradication is not a feasible, expected
outcome. Quantitative indicators can be established for gral attainment.
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18.
Other criteria are established to assess progress along the way. Immediate
objectives may include client access objectives. Other immediate objectives
may include establishment of a drying-out center or a half-way -house. because
certain integrated service achievements are considered necessary before
the longer range or ultimate goals are attained.
A goal hierarchy conceptual framework allows for the evaluation of
progressive changes along the way and shows a sequence of activity achieve-
ments. We are assuming that if the sub-objective at the lower end of the
goal hierarchy are achieved, then the progress accumulates and makes the
ultimate goals reachable. It also serves to provide bench marks of evalua-
tion during the formative stages and does not leave the full burden to outcome
measures only.
The accomplishment of four or five new service linkages, the reduction
Y
of multiple referrals, a drop in incidence rates are indications that the
demonstration is working. The pay-off is in the outcomes -- were the social
problems reduced?
In goal attainment, for a program or a clinical case, barriers must
be identified and alleviated. We ask, "What impedes the progress toward
achieving our goals and hoer can the barrier be removed?"
A brief discussion of barriers and how the Project has confronted the
barriers follows:
Local Government Acceptance
This •potential barrier was recognized early in the life of the project,
even before the application was written. Active collaboration of general
purpose government at local level (i .e. , the county unit) is essential
for approval of the project and in facilitating its start. Even more
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19.
essential for replication or adoption on a county-wide basis is the continued
support and interest of the County Board of Supervisors. This potential
barrier is not a barrier when the project has properly organized the involve-
ment of the county unit government.
An 'important evaluative question for all Integrated Service Projects
is: "If your project has not been considered as a significant local happen-
ing which justified the attention of the County Board of Supervisors, where
were' you hiding the little experiment?"
This project in Contra Costa has continuously maintained political
relationships with its local government and this expected barrier has not
as yet created problems.
Health and Welfare Agency Protective Reactions
Every locality has its community of agencies; some are larger and/or
more prestigious than others. Each agency generelly guards its own "turf,"
and steps toward centralized coordination are taken cautiously, and with.
some suspicion. A new project can tolerate a certain level of agency self-
protective hostility; but if the climate becomes antagonistic, then the
integration project meets its potentially most destructive barrier.
This particular project handled the agency self-protection barrier
by taking a community centered social problem focus. Nearly every social
problem cuts across several agencies and no one agency (health or welfare)
is a central target for change. The project also involved the relevant agencies
and programs in the planning decision-making process which tends to develop
an open commitment rather than an undercover, resistance barrier.
Professional Leadership Competition-
In contrast to agency organizational behavior which may impede or ,
facilitate a community integration effort, there are professional leaders,
usually the VIP's of the health and welfare community in all localities.
%
20.
The professional leader may be an administrative medical doctor, a politically
based public administrator, or a popular, competent educator. These individual
leaders in the health and welfare domain have earned their respective roles
as well as the value of their assistance in building a successful community
project. In the instance of this project, the significance of community
professional leadership has been recognized and numerous efforts made to
gain and hold their support. It is too early,to assess success in implemen-
tatio'n.
Linkage Barriers
In the conceptual framework discussed earlier, the construct, integration
target was introduced. Every identified integration target (for service
• integration) has its own set of potential or extant barriers. In addition
to possible organizational barriers in personnel regulations, policy inter-
pretation or, fiscal limitations, the expected fears about change and dis-
placement can be anticipated. In this instance, provisions were made ahead
for charting the human relationships along with the revision of the or'qaniza-
tional chart and the diagram of the integrated service system network.
At the time of this appraisal , the Contra Costa project was at the
stage of identifying target areas for service integration. Implementation
of recommended plans was the initial phase and the linkage barriers would
be appearing in the next several months.
The Unbudgeted Public Relations Barrier
An unexpected amount of top level project staff time (Principal Inves-
tigator and Project Director) has of necessity gone into public relations
and program interpretation. This excludes the organizational and coordinat-
ing activities which are considered a part of the project development. This
project has a small budget and a big mission. It has attracted considerable
WN 44
21.
national regional and local attention which results in unbudgeted time
demands. Release time of staff for speeches, conferences, field visits,
interested visitors, inquiries by phone and letter and evaluation obligations
was not considered in the initiation of the demonstration. project and
planned use of staff time.
This is a common, unplanned consequence of an experiment which generates
interest to other communities. To quote the project director, "There are
times 'when I am so busy explaining what the project does that I wonder when
I'll find the time to do what I say I'm doing!"
This is a constraint which must be endured with higher productivity
and a longer work week. It does raise the question of under what cir-
cumstances can a $100,000 a year project be accept6d by a government agency
if the Project is to have wide exposure and remain open for all the outside
traffic,? The same overhead costs of responding to outside public relations
and interpretation demands would cover a project responsible for $250,000
for operations.
We found no ready answers for this barrier -- except to handle pressing
public relations pressures as necessary cost of doing business-.--
Absence of Legislative Sanction
The lack of authority or budget to achieve changes in a bureaucratic
context is a challenge, to say the least. A high proportion of the people
to be involved in service integration are merit system employees or political
appointees who are accustomed to the channels and rules of a bureaucratic
system. Resistance to change is usually met by the carrot or the stick
approach or, even better, the combination.
44�
22.
This barrier is one of the "givens" in a service integration program
which cuts across a domain broader than the organizational unit' conducting
the experiment.
This particular barrier can be alleviated but never completely eliminated.
The Contra Costa County Project has handled (up to the time of the first
phase evaluation) this barrier with superior skill and effective strategies.
For example, the Project recognition and award dinner meeting, held after
the task forces had completed their reports with recommendations for action,
offered, an opportunity for first hand assessment of a successful agency
and community project's progress without the traditional authority. Without
legislative sanction or money in the budget to use- for extended service
as a reward to participating agencies, this lack of power can be a serious
barrier. Rewards of other types must be used, and this requires considerable
staff competence.
The Double Messaqe Barrier
This type of barrier affects the continuity of goals and objectives
for an experimental project. It is a constraint which most governmental
administrators have learned to live with in varying degrees of frustration.
A project financed through a federal grant is under greater strain because
there are no contract specifications to point to when the monitoring signals
change.
The project began as a pretest of the proposed Allied Services Act,
encouraged by Federal and Regional staff providing the guidelines of
January 1972. There wr-,�re no blue prints, much less a common conceptual
framework for approaching an Allied iervices program. There are different
perspectives as to what form this activity should take and also different
perspectives as to goals and criteria for assessment of success as the ex-
23.
perimental phase reaches closure by summer 1974.
SRS personnel shifts, HEW Regional Office changes, the in-limbo status
of the Allied Services bill as well as Title IV service regulations plus
other uncertainties leave the project agency uncertain as to whose message
is the right one to follow.
The Contra Costa project has attempted to handle this barrier by pursuing
its amended, approved project plan but with some uneasiness about differing
points of view.
Barriers to Quantification
A sub-barrier under the above might be identified as impediments to
# quantification in the evaluation. The critical variables for observation
shift as the experiment becomes more developed and stabilized. In a longer
time period, a more rigorous evaluation design would have been introduced
after the integrated service mechanisms are operating at an acceptable level
of efficiency, especially after a usable information system is available,
f It might then be possible to approach an experimental design with some
feasible controls by organizations or by target groups.
Less sophisticated evaluation approaches have been used in the Contra
Costa Project -- not because there was lack of research competence in evalua-
tive research methods but because the phenonoma to be observed in the forma-
tive phases of a project belonged at the soft data, qualitative knowledge
level . We cannot quantify what we cannot conceptualize or count by defined
units of service when common units are so limited,
This barrier is a problem to be seriously considered when attempting
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24.
to design an evaluation or to assess an evaluation design.
il The Barrier of Time Limitation
Launching an experiment which invades numerous segments of a community
cannot be visualized as turning a faucet of water on and 'then off. This
is a type of social intervention which is to bring about a, planned change
in service delivery and which must affect health and welfare organizations ,
the people who are to be involved and a target group of beneficiaries.
The short-term, time limited project must proceed as if it expects to
stay in business and build on the developmental work which has gone into
the establishment of the project procedures.
The experiment then never approximates the reality of a true experiment
because all the actors in the picture are constantly reminded that next
year's funding may be cut off or some projects dropped before it reaches
ti
the stage of incgrporation into local funds.
Different model s' fol I owed by the demonstration communities, the differing
community contexts and other varying factors determine the length of the
testing periods. These time periods should differ among the projects.
This project will continue to face a problem with the time limit barrier
because of its half-year delayed start (for unavoidable reasons) which leaves
the project with only six to eight months for implementing its social pro-
blems service integration. It is doubtful if the time los-4 can be overcome
by a May or June 1974 time point in the Contra Costa Project.
These barriers, the descriptions of each and the effect on the Contra
Costa Project have been offered as an important segment of the qualitative
assessment of the progress of the integrated services experiment in that county.
25.
Section III
Material for this section of the Contra Costa County Integrated Services
Project was drawn from a variety of sources: Interviews with staff and others
closely associated with the project, observation and participation in
project meetings , official reports from 1973-74 County Budget Message, the
comprehensive Feasibility Study Desinn of the Allied Services Project,
two Project reports describing the status of the demonstration, nine field
visits by the evaluators and two trips to the University Research Center
by the Project director and two joint Regional (IX) Office conferences,
some 12 to 15 telephone conferences including Region IX calls for monitoring
purposes, and finally, a review of all files and records including 19
subject files with agenda, minutes, progress reports, work completed reports,
project manual etc. One purpose of reviewing all records was to validate
the management and performance objectives set up for evaluation in the -initial
phases of the project operation.
The brief, summary evaluation which follows was based on extensive
qualitative review and analysis and is reduced to a rating assigned by the
evaluator. The assessment of objectives reflects the informed opinion of
the evaluator.
The management by objectives evaluation design during the developmental ,
planning phase through November 1973 covered five major areas, each with
sub-objectives.
I. Program Objective I - To accomplish. the necessary administrative priorities
for launching the project,
. 26.
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Objective III To establish citizen-agency groups for analysis ,of Allied Services Act and legi4lati,ve-
' community support for Integrated Services
Sub-objective Target date Level of achievement Comments
kY met
(1) To establish a task prompt low high The report of the task
force 'for policy 3 4 force - Analysis and •
<r analysis and follow- Recommendations of the
through Allied Services Act is
an outstanding citizen
r (2) To make report on prompt low high group product. It
behalf of project 1 5 represents a sophisti-
cated analysis from a
>a local point of view.
(3) To sustain local continuing low /high At this point in time
interest in `�1 '-2� 3 '�4 _5� the strategies are planned
supporting an and individuals are assign-
Allied Services ed to keep contacts with
Act and/or legislative designated
= ° continuing imple staff. Such strategies
.. . . mentation of project should be effective.
results in the •
county
ko
SLY
Objective IV To explore and develop plans for a Management Information System which will eventually
x serve as a central integrated human services data system
Sub-objectives Target date Level of accomplishment f comments
met
�Y
t
(1) Exploring possible partially met low high For awhile it appeared
design for purposes ` 1 2 3 4 5 that Texas Instruments
defined offer plans for assess-
ment and design.
Considerable time invest-
ment by Director but
�t financing is a problem.
(2) Develop Case not met low./ high This sub-objective appeared
r Management System 1 2 3 4 5 in the earlier proposal
s centered in but has been dropped
f welfare program for reasons outside
control of the project.
(3) Survey of informa- very prompt low, ✓high Project has sponsored a
tion needs of Human T 1 t _277-1 4 5 management survey to
Services "Umbrella determine what could be
Agency." done within the large
multi-program agency
to consolidate and inte-
grate the information
functions. This appears
r to be a logical first
step before re-negotiating
with Texas Instr•uirents or
other systems firms. w
. o
I'
�i
I�
7 ,
vt t
' Objective V To conclude planning phase with community task force reports, social problem analysis,
completed needs and services inventories, plans and strategies for implementation y
Sub-objectives Target date Level of accomplishment t Comments .
met
(1) Recommendations of very prompt - tow ,thigh The groups (on volunteer
task 'force groups for � 1 2 3 4 5 basis) were .hard-working,
integrated service t:ell informed, and did a
implementation good job in keeping the
{ involved agencies (schools,
etc.) informed on the
targets for integration.
By the time the reconrienda-
tions were out, the admin-
istrators or program people
• who were expected to imple-
ment the recommendation
h knew in advance what
would be expected.
J
��rrY
(2) To write the continuinglow high The reports with the
work plans for a r-1.-- 2 3 s -r— --r--� p
p 4 5 recommendations for the
iz each set of four selected social
integrated service in process problems are in various
recommendations levels of specificity.
.. ! Action guidelines and
work plans must be developed.
w for each before implemen-
tation during the next
several months.
ter:
q Lt'K-s RFs ,ltn s
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r f ! � ,•� x � r
4
f
Appendix
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t,
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1
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•
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i T� ��.,3 "rs,;' ,t"SY � .'i...�. , l..,axN'ti�i FF�^ -�. rtY;;R, .,c.'a Y�4a �p z..�x�jAP z�..y:F3'�.k �.p{x,..€�t�+`�c S.R i%�`� �t:siv.:`�kI,�S�.t.��S..• �3�ri;,P.};y '�" sb,� �$ �,L � ?s%t`.;
'�}� •�� ���i"� k� (i *1� vi+ 31` "r7 "si: ;3?��.`t��„ , sx�•+�t��,",�,i.�^ -^�37 m'M+.� 4+a tib �-v � -. �5 3�i� s#,��Cf'4`;'s��• ,, �E "�k�a. "-�i t�¢�`ka
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a u :c
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MIT
!'Work ScheduleXv
5.. Copy
W � + � v -Awn
N4� M � 5
now
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r Y ,
a�
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it
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' '�.xi #5 ✓ i .r =yany
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r d:;s�>u �:+�•�-3�r�..'�.3+^tj }i,'at:±.a.�.Yf Ep�'i'�sILT,r' � 1;�.o�.x&r�9'"�L
. #'tis',.;`�>;.,�..:. y�'d<x .::4,r. �,.�'1r tom.;. �„� �'a�' J�'.'�^'��`y�R,-'°,•, .c. E�.T�''. .:3 t�$_•��ixf��#.� -mF..h t�ytl a:�.'r ��..��g+'+.'�tl`5�.�,"�4,'t7: P*� 6f..Jx �#�...s.v�„*;�. �
• WORK PLAN
Goal - Three Year '
The alleviation of social problems through the design and 'implementation of
an access, linkage and follow thru mechanism which coordinates separate
agency services to focus on specific social problems of the community.
r
Goal - Planning Year
To design an access, linkage and follow thru mechanism which coordinates
separate agency services to focus on specific social problems of the
community.
Objectives:
In order to reach the above stated goals, we have• set four major objectives
. to be achieved. They are: -•
1. Establishment of Planning Structure
• 11. Utilization of .Social •Problems Approach
111. Development of Evaluation Procedure
IV. Design Management Control System '
Within each of these objectives are identified activities which are to be
accomplished within a time frame. In accomplishing these activities, the
goals and objectives of the project will in turn be achieved.
•
.* ryu� � x t •.: ;_ S '� ,-sxf t x. \ } r a` t 1 s- t:... }s , u s...r.. } �9.i Ryr2x 3•"� §e."';ls�r. -, Z'.Y s.K+" .r.b�r �r M, ,4 �.{•
�.,,;.:s.- �.�'.,5. 'r.�r... .f..�/mr4 t p a....r.x > *- Erx -,..t +-• r� 4 .. t - a• (' y
'4� ..+,#irr+ \i ...Y:S Vi 1.3'_x q:1.. -y!�`t415'Jl.u..r: �`(� S_3,. h! ..4 .#'��j7z:�.b Y.. '3+•�-V � E '.•.. j. �:4:.� T.;�'••1f�.:�i-��.��k• f._i: :Q;? \•;^l '.Yw 1. rY:J L �. _n� ..t l\i7;"S$,
t��•S'R, ��-- 5d :.,,,�'•,,.,.2 L .,�„-tl � ,`.-t'r ^+5;..,5,..w.?;��"� �pjr� :.r� g3k "^a,�. '.m•.,n° ..;���,d ✓- � , r .t:.,�Ats�, r},jC 7"� .�r�+`•. v"'�`'. -t1 FNr�r,:''z" �,Ad" � t
r. �s^5;e1.� &§�"' Ems„,s. .�� ',t" s�ira� + �Y;�:''t L .0 �3 •r*.F. s -• ��^"yr.�,;�a�, lan�`:*Ef
- - — -._._. _.. ..--•-- ' CHART I
. - •PLANNING STRUCTURE. :
;. . Authorization of Board of•Supervlsors • ////////
` -Endorsement of Model Cities
Freparation of Grant Application //////// . � •
Develop Job Descriptions ' //////// ///////
�r Selection of Project Staff
=k Administrative Support•(tpace;.equfp..'supplies)
,dvance Meetings Work Group � /////j// //////% //%////
CE--clop Work Plan - ' /////// /////f// !//I •f
Develop Board
,Develop Commission
J1,. ! .
Develop Project'Planning • I/// ///
3i. Develop Task Forces
Conduct In-Service:Training
Develop Forms & Manuals
Public Infarnation •/// ///
Job Development
s Second Year Staff /////// ///////
OCT. ROV. JAN.. FEB. MAR. AOR. F MY JU�E F-JULY AUG. I SEP. .
_�=
'1972 1973
� _-- -• ----. ..._— ��. CHART'II
SOCIAL PROBL84S
-Develop Problem Criteria
`Problem Identification
Problem Selection
Problem Analysis
'r Resource Assessment ; ; { • , ///!// /// '
Goals Formation
'Identify Program Arens = Linkage, Cooraination,
'Access .
Inter-Agency Negotiations • i //// /////// ///////
k7"11.Program Development Recommendations Submitted
k Involve Other Geographic and/pr-Service Areas
Second Year.ProposalOCT NOV DEC, -JAN. FEB. )�R. MAY JUNE JULY AUG. SEP. OCT.
,• . 1972 1973
ii
�i
,y
CHART III
• _ tVALUATION PROCEDURE'
f, y4� ' a r • ss
Selection of Evaluation Consultant' lIl!
k First Year Design Evaluation Submitted
Evaluation Progress Reports: �� , 11/1 `: y
Organizational -Progress Evaluation s •' 11111!/ IJJI/JJI Il/I>/I 1!1!111 1111111 /VIII llllll /111111 IIII/I/ 111111 /!111!1 !/
• • i;.
'Iarrative Project History i %llllll 11!/111 111!!!1 1111/111 I1I1/ll 1//ill !!Illi! Il/t/t llllll! 11111th //1/!I/ 11111/
eiarterly Reports •j !!/ !l!• !!! /!!
f rst Year�'Projedt Evaluation Report Submitted
"" econd 'Year Design -Evaluation Submitted 1111
r 1972 1973 .
. .
1. _ ..
s' _ ' !
xr€ .
f
CHART IV
------------
MANAGEMENT CONTROL SYSTEM
�=_EVELOPINENT OF INFORMATION SYSTEM:
Selection of the SystPan' 1111 1111///
System Design 1111/!/
Form Development 11111111U11111111111
µM Establish Information System.
Complex.
Corrective Adjustment Phase
DNELOPt:ENT OF CASE MARAGE101T•APPROACH:
Review of Available Approaches ;� 1111 1111/// 1111/// 1111
- , Selection of the Approach
Design:of System
- is . "• ..
"{ '10EyELOP,7ENT OF IMPACT AKALYSIS SYSTEM:
Researcir and Development
pW. FEB. �M. 7�9. RXY JUNE JULY AUG. SEP.
,• ' •'
1972 = 1973•
t
-
II
ALLIED SERVICES PRE-TEST PROJECT
PLANNING STRUCTURE'
Attached is a chart indicating the •planning structure and decision making levels
-_ within the project. In order to understand more clearly the composition and
responsibility of the major groups indentified in the chart, the following outline
is presented.
Allied Services Board:
The Allied Services Board is composed of the-principal executives or their
designates of the major governmental entities and agencies involved in the
project. Proposed for initial membership are:
County Administrator
Human Resources Director
County Probation Officer
Richmond City Manager
Chief, Richmond Police Department
Superintendent, Richmond Unified School District
" Model Cities Director, Richmond Model Cities
Allied Services Project Commission Chairperson
The Allied Services Project Director will serve staff to this board..
Membership on this board-will be open-ended and •additional members can be
added as needed during project development.
The functions of the Project Board are:
+ 1. Provide the basis of authority for the project.
2.. Approve the purpose of the project.
• .3. Accept responsibility for follow-through of the project.
4. Provide the project with staff and other resources.
5. Accept responsibility for interpreting the project to the community
and respective agencies and governing bodies.
5. To review and approve the final planning proposal with concurrence
of the Allied Services Commission.
Allied Services Commission:
The Allied Services Commission is composed of individuals who meet one or
more of the following criteria:
1. Knowledge of the project area.
z x
.,., :.a+e;i ,...�',: , ,., , r. .:x., tt. y:r-r.... ,, i... .-..s.. ."ri�'k. .�saK ...r;aXc°,sy.dFrx 4',:a t '4k�%�.��y.a L''i,.k ..Nr'n,�r •Tt�.'—W, 4.�.
2. Representative of low-income or minority groups.
3. Member of a voluntary community based organization.
4* Member of.,community civic organization.
5. Community groups or programs representing special consumer interests ,
e.g. , Title I , EOA, I Sen I ior Citizen Council , Developmental Disability
Council , etc.
The Allied Services Director serves as Staff to this commission.
A wide range of organizations will be asked to name individuals who will
be invited to accept appointment to the Commission. Expansion of membership
to'accommodate county-wide involvement will have to be dealt with by the
Commission as the Project develops.
In order to facilitate discussions between the Commission and the Project
Board it is suggested that the Commission create from its own membership a
small executive committee which can serve in this capacity. Members of
the Commission will be asked to except substantial responsibility for serv-
ing on the task forces which will be created to work on various aspects of
the Project.
The functions of the Commission are:
i. Participation in all planning and operational activities of the
ProJeqt.
2. Review and approval of all material generated by the Project
• Planning Group (see below), task forces and staff.
- 3. Serve as liaison with all parts of the community.
• Task Forces:
Task forces will be work focused groups described and appointed as the
Project develops. The membership will be selected from the Commission,
the community at large, and appropriate service providing agencies. The
results of their work will be forwarded to the Commission and Board
.for review and approval .
The Allied Services ProLect Director:
The responsibility for overall direction of the Project has been delegated
to the Allied Services Project Director by the Director of the Contra Costa
County Human Resources Agency who is the nominal Director of this Project.
The Allied Services Project Director will provide over-all direction and
management to the Project staff consisting of a Social Planner, Programmer
Analyst and a Community Participation Organizer and, through delegation to
&
the Social Planner, provide overall direction and management to the
Project Planning Group. ,
The Allied Services Project Director serves as staff to the Allied
Services and Board and Commission,
The Allied Services Planning Group:
The Allied Services Planning Group is composed of:
1. Individuals having administrative and/or planning responsibilities
in each of the affiliated agencies and organizations. !
2. Representatives of the Allied Services Commission.
3. . Staff persons from affiliated agencies/organizations and others who
are selected on the basis of special knowledge or expertise.
The responsibilities of the above members will vary depending on their time
commitment to the project. They may serve in one or more of the following
areas of responsibility:
1 . Consultation to the Project.
2, Liason with the Project and their respective agency/organization.
• 3. Task work related to the Project '
. The Social Planner is delegated to co-ordinate the participation of each
of the members in relation to the planning group.
The over-all responsibility of this group will be to initiate and maintain
the planning process of the Project through the first year.
n,k ".',i t ,', t,: S ,ay ._. '.4',`!r ' 7 `) :�n+. a. X t p(,r ,s n Y w..+€.."sY;,` .•.
"w_z4''.Y..�i,w+r�L'h'Li kkq':;1.a,� ,::•,..�:{.,. fiis=t��f1�.�.�'lr°Y�,s�:�,w,�.u�`tJYe�:''�tii�x v'u ,{.:.+_t•�,,tx.: l�d.X:w„'if ..a t.+*t�`.°h Y �'�k�3�yr`." stt,Yx,."�°.r:y.�^�,�'•°ks,:+s�'�,�•, iksT�.`}.� r�*-��s`�w•� �".r�.s,ro..
i
O
p�sio� ALLIED SERVICES PROJECT - Levels of Decision-Making
kP �Pc� s ad��49
-
4
Board Board City Model
of of roc�dv
Supervisors Education Council Eoa�ds LEVEL i t
�P
i
Director.
il ! Human Resources
Agency
Director
Allied Service Allied Services Allied Services LEVEL ! i '-
Pro•ect Board -spa Commission
.001 .
r Community Social Data Secretary ? `�• �/
Part.Orq. Planner Analyst '
Allied Services
Project Task Forces LEVEL I I
Planning
Group
= Authority Relationship (flows down)
= Advisory Relationship (flows u ) k
E
In the Board of Supervisors
of
Contra Costa County, State of California
January 18 , 197-7--
In
97-7-.In the Matter of
Allied Services Commission
Final Report.
The Board on December 21, 1976 having approved the
recommendation of its Government Operations Committee
(Supervisors A. M. Dias and E. A. Linscheid) that the Allied
Services Commission Final Report be referred to the full Board
for consideration in 1977; and good cause appearing therefor;
IT IS BY THE BOARD ORDERED that said Final Report is
REFERRED to the Internal Operations Committee (Supervisors E. H.
Hasseltine and N. C. Fanden) to be considered in conjunction
with the proposal for a comprehensive human services planning
and decision-making process (referred to said Committee on
January 11, 1977).
PASSED by the Board on January 18, 1977.
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc: Committee Members f,./, -
Witness my hand and the Seal of the Board of
Director, Human ;_rte Supervisors
Resources Agency affixed thisl8thday of_ January . 19 77
County Administrator
Public Information
Officer �p J. R. OLSSON, Clerk
By L . Deputy Clerk
Helen C. Marshall
H-24 3/76 15m ,,- ��. i r f `
I
a
In the Board of Supervisors
of
Contra Costa County, State of California
December 18 19 Za-
fin the Matter of
Providing Stipends for Members
of the Allied Services
Commission,
This Board on October 23, 1973 having adopted an order
approving an Allied Services Commission, approving appointment
of the members thereto, and providing for stipends for members
thereof; and
Said order being unclear as to the intent of the Board
in relation to said stipends; and
It being the intent of the Board in taking its October 23,
1973 action that the stipend of $14 be paid for attendance at
Commission meetings and for attendance at meetings of task force
groups comprised of Commission members for all such meetings
held in the fiscal year 1973--1974, said stipend being in lieu
of travel expenses; and
NOW, THEREFORE, on motion of Supervisor E. A. Linscheid,
seconded by Supervisor J. P. Kenny, IT IS BY THE BOARD ORDERED
that its October 23, 1973 order is AMENDED to clarify the intent
of the Board as hereinabove stated.
The foregoing order was passed by the following vote:
AYES. Supervisors J. P. Kenny, W. N. Boggess,
E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: Supervisor J. E. Moriarty.
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc: Director, Human Resources Witness my hand and the Seal of the Board of
Agency Supervisors
Director, Allied affixed this 18thday of December , 19 73_
Services Project .JAMES R. OLSSON, Co ty Clerk ����
Auditor-Controller
Administrator By k4 -_� Deputy Clerk
L. Kincaid
H 24 5/73-15M
CONTRA COSTA COUNTY
F IV ED
- � RE
8C 171973
officeof
IN THE BOARD OF SUPERVISORS County Administrator
OF
CONTRA COSTA COUNTY, STATE OF CALIFORNIA
October 23, 1973
In the Matter of Approving ) .
Allied Services Commission, )
Approving Appointment of the )
Members Thereto, and Providing )
for Member Stipends. )
Mr. R. E. Jornlin, Director, Human Resources Agency, having
submitted an October 16, 1973 memorandum report (a copy of which is
on file with the ,Clerk• of the Board) , reminding the Board of its
prior approvals of the Allied Services Program in Contra Costa County,
recommending approval of his appointments to an Allied Services
Commission established to study problems of special interest to the
Board, and recommending further that each member of said Commission
be provided with a stipend of $10. 00 per meeting, as permitted under
the provisions of California Government Code Sections 31000.1 and
31000.2;
NOW, THEREFORE, on the motion of Supervisor E. A. Linscheid,
seconded by Supervisor W. N. Boggess, IT IS BY THE BOARD ORDERED that
the recommendations of Mr. Jornlin, including appointments of the
following persons to the Allied Services Commission, are hereby
approved:
Mary L. Blackburn (Parliamentarian) Eddis Harrison
2288 Fulton Street 5320 Rosalind
Berkeley, California 94704 E1 Cerrito, California 94530
Bob Clark (Vice-Chairman) Ethel Hasmann
2710 Wiswall 4113-A Macdonald
Richmond, California 94804 Richmond, California 94804
Kagey Dorosz (Secretary) Ethel Holmes
320 - 13th Street s 462 Spring Street
Richmond, California 94804 Richmond, California 94804
Willie F. Dorsey Myrtle Hunt
513 Grove Avenue 449 South . 7th Street
Richmond, California 94804 Richmond, California 94804
Ethel Dotson Richard A. Kelley
2800 Mission Bell Drive 1020 Nevin Avenue
San Pablo, ' California 94806 - Richmond, California 94804
Manuel Estrada Juanita La Beaux
1234 Nevin Avenue 745 South 14th Street
Richmond, California 94801 Richmond, California 94804
1
Hazel Hall Perkins A. Lovelace
245 South 7th Street 449 South 17th Street
Richmond, California 94804 Richmond, California 94804
Ruth L. Hansen Charles Mason
1100 Roosevelt Avenue 1595 Jade Street
Richmond, California 94804 N.' Richmond, California 94801
Frances McDaniels Betty Stiles
5990 Rose Arbor 71;0 Hancock Way
Richmond, California 94804 Ei Cerrito, California 94531
t
�I
A. Donald Miller, M. D. Charles Wilson
23rd and Garvin 2288 Zulton Street
Richmond, California 94804 Berkeley, California 94704
Ada Pierce Isaiah Winn
1616 Jade Street 705 Harrison Drive
N. Richmond, California 94801 Richmond, California- 94804
M. M. Snodgrass Hyman Wong (Chairman)
4505 Macdonald Avenue 2832 Oxford Avenue j
Richmond, California 94804 Richmond, California 94804
Alternate Members {f
Zelda De Paoli
1714 Harrald Street
Richmond, California 94}804
Dorothy Hackett 1
4511 Escuela Court
Richmond, California 94804
William Hall
245 South 7th Street
Richmond, California 94.804
IT IS BY THE BOARD ALSO ORDERED that the County Auditor-
Controller is authorized to pay during the fiscal year 1973-1974 to
each of the aforesaid Commission members a stipend of 510.00 for atten-
dance at Commission meetings and for attendance at meetings of task
force groups comprised of Commission members, said stipend being in
lieu of travel expenses;
IT IS BY THE BOARD FURTHER ORDERED that the total of the
aforesaid stipend payments shall not exceed $2,500.00 for the fiscal
year 1973-1974, said sum being the amount allocated for such purpose
in the federal grant for the Allied Services Program.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. E. Moriarty, W. N. Boggess,
E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: Supervisor J. P. Kenny.
I hereby certify that the foregoing is a true and correct
copy of an order entered on the minutes of said Board of Supervisors
on the date aforesaid. 1
Witness my hand and the Seal of
the Board of Supervisors
cc: Director, Human Resources affixed this 23rd day of October, 1973 .
Agency W. T. PAASCH, Clerk
Director, Allied Services
Project
Appointees c/o Director, Bjl�ge" Deputy Clerk
Allied Services Project Na y graham
County Auditor-Controller
County Administrator i
County Counsel
a l� 0)Xw?'-V/7.3 1
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In the Board of Supervisors
of
Contra Costa County, State of California
November .26 , 19 Z3-
In the Matter of
Acknowledging receipt of Progress
Report on the Allied Services
Project and endorsing a
Feasibility Study Design,
The County Administrator having submitted to the Board a
progress report on the Allied Services Project in Contra Costa
County and a Feasibility Study Design dated October 31, 1973,
reflecting the plans and concepts for the second phase of said
project; and
On motion of Supervisor E. A. Linscheid, seconded by
Supervisor W. N. Boggess, IT IS BY THE BOARD ORDERED that
receipt of aforesaid progress report is ACKNOWLEDGED;and
the Feasibility Study Design is hereby ENDORSED.
The foregoing order was passed by the following vote:
AYES: Supervisors J. P. Kenny, J. E. Moriarty,
W. N. Boggess, E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: None.
hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc• Human Resources Agency Witness my hand and the Sea[ of the Board of
Allied Services Project Supervisors
Administrator affixed this 26th day of November 1973_
W, T. PAASCH, Clerk
By J . Deputy Clerk
Lourette Kincaid
H 24 5/73-15M
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CONTRA'COSm COUNTY,
ALLIED S E R V I C B S `F. R O J E C T
l
1"RJECEIVEMI.
NQY -1973
W. T. PAASCH,
CLERK'GOARD'9F SUPERVISORS
ONT'RA STA 4
BY Deputy
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INTRODUCTION
As a result of a request for additional information, the
following pages describe the activities of the Allied SOrvices Project
for Contra Costa County, California, and include a detailed work plan
with specific products to be developed noted.
Briefly, though the grant award was made in July of 1972,
actual activity on the Project did not begin until December of 1972,
due to delay in administratively gearing up for the Project. Though
this has resulted in an accelerated work effort on the Project's part,
it is estimated that full implementation will be completed by June 30,
1975. It will involve the expanded integrated effort of the Human
Resources Agency as the prime integrator, as well as a coordinated de-
livery system with other identified agencies within the community, the
emphasis being on efficiency and effectiveness resulting in an improved
human services delivery system. For further information regarding this
Project, contact Mrs. Judy Ann Miller, Allied Services Project Director,
Human Resources Agency, Contra Costa County, 651 Pine Street, Martinez,
California 94553, telephone number (415) 228-3000, extension 2921.-
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DESIGN OF A PRE-TEST OF THE ALLIED SERVICES ACT
PROJWT SUMMARY
I. PROJECT BACKGROUND
The Department of Health, Education, and Welfare has identified
the fragmentation of human services among a variety of agencies, profes-
sions, and governmental systems as one of the principal barriers to the
achievement of maximum effectiveness in the provision of those services
and maximum efficiency in the utilization of available resources. It is
recognized that this fragmentation has resulted from the combination of
influences, including traditional organizational patterns, categorical
funding systems, lack of flexibility in responding to community needs,
continuation of irrelevant or ineffective programs, etc. In an effort
to deal with this problem, the Department prepared and introduced the
Allied Services Act. The Allied Services Act is intended to encourage
states and local communities to examine their existing human services
delivery systems, with the goal of making them more relevant and effective
from the client's perspective, and to determine the extent to which inte-
gration and/or coordination of services could further achieve this goal.
Additionally, to insure that the services are cost effective, the component
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of efficiency of services was included to insure that the provision of
service is done so as to minimize unnecessary duplication and overlap of
efforts. To enable the communities to do this, the Act would make money,
available for broad-based planning at the state and local levels and
would permit greater flexibility in the allocation of funds and design
of administrative structures.
The Department also recognized fhat many of the implications
of the Allied Services approach were unknown or unclear. it established
a demonstration program for testing the concepts embodied by the proposed
Allied Services Act in communities across the country. Contra Costa
County was chosen as one of the sites for this demonstration. In November
of 1971 the Social Service Department, Contra Costa County, in conjunction
with Richmond Model Cities, developed a limited services integration pro-
posal for submission to NEW. During the final development of this proposal
for submission, two important events occurred: On the national level, the
anticipated introduction of President Nixon's Allied Services Act of 1972,
and on the County level, the creation of a Human Resources Agency, which
consolidated the County Health Department, Medical Services, Social Service
Department, and Mental Health into one agency. As a result of these two
events, as well as because of the history of coordinated activities between
the County and the City of Richmond, Contra Costa County was approached
concerning the possibility of expanding its limited services proposal to
incorporate the design of a pre-test of the Allied Services Act.
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Contra
-Contra Costa County accepted the expansion of this proposal and,
as a result, a grant of $111,205 was awarded on July 17, 1972. The months
between July, 1972, and December, 1972, had little activity in regard to
the Project, due to a change in proposed Project staff and the need of the
County to re-examine its emphasis in this Project because of a resulting
• closed-end services appropriation and the concern that Model Cities may
be phased out or eliminated. These factors not only had a bearing on
the direction of the Project, but also on the ability of the parties in-
volved to provide emphasis to this Project while faced with an impending
crisis. Nevertheless, in December, 1972, the Project Director was brought
on board and undertook immediately to expand the original proposal to be
more reflective of a project impacting on national legislation, as well
as insuring that the Project acquired its additional staff.
The objectives of the pre-planning period werer
(1) To more clearly identify those locaZ service agencies and
representatives of the community who were going to work conjointly in
developing an improved services-delivery system.
(2) To design a planning structure with an expanded work plan
to facilitate the above objective.
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In accomplishing the above objective, two working bodies were
formed, the first body given the working title of the Allied Services
Board. it is comprised of agency heads or their designated representa-
tives, and .includes both city and County service agencies. These include:
A representative from the County Administrator's Office, the County Pro-
bation Officer, the County Medical Director, the County Health Officer,
the County Social Service Director, the County Human Resources Agency
Director, the Assistant City Manager of Richmond, and representatives ,
from Richmond Model Cities, Richmond Police Department, Richmond Unified
School District, as we-Z1 as the Chairman of the Allied Services Commission.
The functions of the Board are as follows: Policy-making for the Project
and as the basis of authority for the Project.
The second body, given the working title of the Allied Services
Commission, was made up of citizen-representatives from those civic organi-
zations representing special interest groups, low-income or minority
groups, or voluntary organizations, with the responsibility of participa-
ting in all planning and operational activities of the Project and review-
ing all material generated by the Project. To enhance the planning effort
of the Project, a Project Planning Group was developed, under the direction
of the Project Planner. It is comprised of high administrative staff from
each of the participating agencies. Additionally, to provide back-up
support to the Project, the Program Planning Division of the Human Resources
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Agency was designated to fulfill this role. It was recognized that to
insure complete involvement of both the agencies and the citizens, Task
Forces, staffed by the Project Planning Group members, would be comprised
of members from the Commission and representatives from the Board and
should be work-focused groups designated as the Project developed.. With
the identification of the working components, a design of a planning
structure to create these components and a work plan which indicated the
activity planning needed to be established. This was completed in March
of 1973. All the above was done with the assistance of a technical sub-
committee staffed by members of Richmond Model Cities and the planners
from the Social Program Planning Division of the Human Resources Agency.
II. PROJECT APPROACH
In designing a pre-test of an integrated human services delivery
system for our community, the immediate issue is: How can a planned
approach be developed which will be manageable and achieve success? It
was decided that in order to avoid going off in all directions at one
time, dissipating energies and resources, a manageable focus should be
developed which has the possibility of showing measured success. Given
the time restrictions, the delay in the Project, and with the knowledge
that other projects were concentrating on needs analysis, the Project
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decided to, in conjunction with input. from the Allied Services Board,
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Project Planning Group, and Allied Services Commission, develop a consensus
listing of social problems in the community in which it was felt, on the
basis of the experience of the agency staff and the needs of the community,
that the impact of services integration could result in possible alleviation
of those problems.
After much negotiating between the bodies identified above,
there was agreement to concentrate the efforts of-the Task Forces 'on the
following problem areas: (1) Substance Abuse (Drugs and Alcohol); (2)
Child Care; (3) Services to the Elderly; (4) Career Development Alterna-
tives; (5) Legislation. The Task Forces met in relation to the above
problems and were provided with data from (1) Project staff, (2) Expert
Witnesses, and (3) external data resources (position papers). Their
activity culminated in the presentation of five reports recommending
changes in their given areas toward better services integration. A
summary of the A•IZied Services Project recommendations is attached. (For
the complete recommendations, refer to the Feasibility Study Design pro-
posal.)
The main focus of the Project between November 1 and June 30
will be to serve as an integrator unit. Our two major roles will be to
continue workking to obtain results of the first-year effort and, secondly,
to serve as resource to assist the integrating process within the Human
Resources Agency by identifying various integrative opportunities.
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In its primary role, the integrator will serve as a coordinator
between the HRA, the Allied Services Project, and the community at large.
In this role the integrator will contribute to the coordinating activities
which lead to integration of direct services.
In obtaining said results, the Allied Services Project shall
designate the Program Planning Group as the focal point for refining
recommendations, assessing their feasibility, and facilitating the imple-
mentation of same.
To support the Program Planning Group, a group will be formed
at the department level and be denoted as the feasibility team. The team
will be composed of department personnel nominated by the department head.
Ultimately these team members will be involved in the implementation of
the recommendations in their respective agencies.
The Program Planning Group will conduct monthly meetings to
review planning integration process of each of the participating eight
agencies.
The Program Planning Group members will apprise the Allied
Services Commission monthly on the progress of the feasibility teams.
The Allied Services Commission will serve to guide the Project
in terms of community feedback. The Commission will form monitoring
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teams to oversee progress in the five. areas of recommendations. The
monitoring teams will communicate directly with cognizant Program Plan-
ring members.
The monitoring teams will collect data on a systematic basis
for evaluating progress and providing feedback for appropriate adjust-
me ts.
djust-mems.
Concurrent with the Project's efforts, the Human Resources
Agency is conducting a management survey at the direct services level,
which will provide additional information as to pathways to services inte-
gration. The Human Resources Agency is also having discussions with a
private firm aimed toward the development of an information system, which
has been identified as being at the core of efficient and effective
services delivery. Staff from the Human Resources Agency are at present
making a systems analysis to determine its needs in this area, and it is
anticipated that their final report will be used to insure that the infor-
mation system developed is commensurate with the needs of the Agency and
responsive to the concerns of the community. Attached is a PERT chart
which indicates the sequence of work effort between November 1, 1973, and
June 30, 1974.
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SUMMARY OF1 THE ALLIED SERVICES'PROJECT
RRCOMMENDATSONS
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SUMMARY OF ALLIED"SERVICES PROJECT
RECOMMENDATIONS
The Task Force on Substance Abuse observed that the cost of
treatment can be reduced substantially by consolidating treatment services
in the City of Richmond. They recommended an integrated approach for
early identification and treatment of substance abusers, including the
initiation of diversionary system to reduce the entry of less serious
cases into the criminal justice system.
The Task Force recommendations concerned with problems of the
elderly emphasized the need for coordinated specialized services to the
elderly citizen. The primary need identified is to provide a focal point
of service which the client can identify with. The recommendations called
for simplifications of intake procedures and improved quality of substan-
tive services.
The recommendations of the Task Force on Child Care were involved
with maximization and continuity of preventive health services. They urged
a cooperative activity of all relevant services, including health and after-
school care. The Task Force's primary concern is with developing a
clearing-house of information which provides data on various types of
available child care facilities. Additionally, they urged that this be
augmented with a system for managing the after-school activities of older
children.
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The Task Force on Lack of Career Alternatives concerned itself
with youth who are leaving school without entry level employable skills
and career direction. Simultaneous with the establishment of this Task
Force, the Richmond Unified School District was awarded project funds
to deal with this problem in the Task Force deliberations. It was
decided that, in order to avoid overlap and duplication of effort, the
Allied Services Project would support the school project. This will also
allow for the integration of public agency services with the Career
Education Program. This recommendation is already being implemented.
The Legislative Task Force reviewed the proposed Allied Services
Act of 1972 and suggested modification in several areas. The Task Force
was principally concerned with the centralization of authority at the
state level as provided for in the Act. As an alternative, they suggested
a grass-roots focus to improve service delivery. The Task Force proposed
that the focus of administrative authority be at the county level and that
the county provide for a governance structure which allows for a broad-
based citizens' participation.
This Task Force will remain active to develop communication and
influence the legislative process in relation to the legislative barriers
identified by the other Task Forces.
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` IN THE BOARD OF SUPERVISORS
OF
CONTRA COSTA COUNTY, STATE OF CALIFORNIA
October 23, 1973
In the Matter of Approving )
Allied Services Commission, )
Approving Appointment of the )
Members Thereto, and Providing )
for Member Stipends. )
Mr. R. E. Jornlin, Director, Human Resources Agency, having
submitted an October 16, 1973 memorandum report (a copy of which is
on file with the Clerk of the Board) , reminding the Board of its
prior approvals of the Allied Services Program in Contra Costa County,
recommending approval of his appointments to an Allied Services
Commission established to study problems of special interest to the
Board, and recommending further that each member of said Commission
be provided with a stipend of $10.00 per meeting, as permitted under
the provisions of California Government Code Sections 31000.1 and
31000.2;
NOW, THEREFORE, on the motion of Supervisor E. -A: Linscheid,
seconded by Supervisor W. N. Boggess, IT IS BY THE BOARD ORDERED that
the recommendations of Mr. Jornlin, including appointments of the
following persons to the Allied Services Commission, are hereby
approved:
Mary L. Blackburn (Parliamentarian) Eddis Harrison
2288 Fulton Street 5320 Rosalind
Berkeley, California 94704 E1 Cerrito, California 94530
Bob Clark (Vice-Chairman) Ethel Hasmann
2710 Wiswall 4113-A Macdonald
Richmond, California 94804 Richmond, California 94804
Kagey Dorosz (Secretary) Ethel Holmes
320 - 13th Street 462 Spring Street
Richmond, California 94804 Richmond, California 94804
Willie F. Dorsey Myrtle Hunt
513 Grove Avenue 449 South 17th Street
Richmond, California 94804 Richmond, California 94804
Ethel Dotson Richard A. Kelley
2800 Mission Bell Drive 1020 Nevin Avenue
San Pablo, California 94806 Richmond, California 94804
Manuel Estrada Juanita La Beaux
1234 Nevin Avenue 745 South 14th Street
Richmond, California 94801 Richmond, California 94804
Hazel Hall Perkins A. Lovelace
245 South 7th Street 449 South 17th Street
Richmond, California 94804 Richmond, California 94804
Ruth L. Hansen Charles Mason
1100 Roosevelt Avenue 1595 Jade Street
Richmond, California 94804 N. Richmond, California 94801
Frances McDaniels Betty Stiles
5990 Rose Arbor 710 Hancock Way
Richmond, California 94804 E1 Cerrito, California 94531
A. Donald Miller, M. D. Charles Wilson
23rd and Garvin 2288 Fulton Street
Richmond, California 94804 Berkeley, California 94704
Ada Pierce Isaiah Winn
1616 Jade Street 705 Harrison Drive
N. Richmond, California 94801 Richmond, California 94804
M. M. Snodgrass - Hyman Wong (Chairman)
4505 Macdonald Avenue 2832 Oxford Avenue
Richmond, California 94804 Richmond, California 94804
Alternate Members
Zelda De Paoli
1714 Harrald Street
Richmond, California 94804
Dorothy Hackett
4511 Escuela Court
Richmond, California 94804
William Hall
245 South 7th Street
Richmond, California 94804
IT IS BY THE BOARD ALSO ORDERED that the County Auditor-
Controller is authorized to pay during the fiscal year 1973-1974 to
each of the aforesaid Commission members a stipend of $10.00 for atten-
dance at Commission meetings and for attendance at meetings of task
force groups comprised of Commission members, said stipend being in
lieu of travel expenses;
IT IS BY THE BOARD FURTHER ORDERED that the total of the
aforesaid stipend payments shall not exceed $2,500.00 for the fiscal
year 1973-1974, said sum being the amount allocated for such purpose
in the federal grant for the Allied Services Program.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. E. Moriarty, W. N. Boggess,
E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: Supervisor J. P. Kenny.
I hereby certify that the foregoing is a true and correct
copy of an order entered on the minutes of said Board of Supervisors
on the date aforesaid.
Witness my hand and the Seal of
the Board of Supervisors
cc: Director, Human Resources affixed this 23rd day of October, 1973
Agency W, T. PAASCH, Clerk
Director, Allied Services
Project
Appointees c/o Director, By �eputy Clerk
Allied Services Project Nan I raham
County Auditor-Controller
County Administrator
County Counsel
-human Resources tgency
CONTRA COSTA COUNTY
Date October 16, 1973
To J. P. MCBRIEN, OUNTY ADMINISTRATOR
.,�
From R. lLrn� Human Resources Agency Director
Subj REIOR EXPENSES OF THE ALLIED SERVICES COMMISSION MEMBERS A's
Reference:
a
Reference: My memo to you dated June 5, 1973, entitled, "Establishment of
Stipend for Allied Services Commission Members," and your memo
to me dated June 11, 1973, subject above
Pursuant to Section 30100.1 of the California Government Code, the Board
of Supervisors may appoint a commission or committee of citizens to study
problems of general or special interest to the Board and to make reports
and recommendations to the Board. For such commissions or committees, the
Board may pay from any available funds the actual and necessary expenses for
the commission members while on official business. Furthermore, Section
31000.2 provides that the Board of Supervisors may pay special allowances
such as per diem stipends for members of commissions or committees of
citizens established pursuant to the provision of 31000.1 when such allow-
ances are authorized and reimbursable under federal programs in 'which
County participation is approved by the Board.
By Board order dated 5/16/72, the Board approved the submission of an
application to HEW for a Project to Design a Pre-Test of the Allied Services
Act of 1972. By Board order dated 7/31/72, they accepted the grant of
$111,205. Additionally, by Board resolution dated 2/20/73, the Board
reaffirmed its support of the Allied Services Project, and by Board order
dated 5/21/73, they approved the submission of the second-year proposal.
Subsequently on 8/27/73, they accepted second-year funding of $93,000.
In addition,• the Allied Services grant allows for $2,500 for the expenses
of members of the Allied Services Commission. Therefore, the Allied Services
Project is a program in which County participation has been approved by the
Board and which makes federal funds available for reimbursing members of
the Allied Services Commission.
It is respectfully requested that you take action to have the Board of
Supervisors, pursuant to Government Code Section 31000.1, establish and
appoint members of the Allied Services Commission with the understanding
that the purpose of the Commission will be to study problems of special
interest to the Board relating to the Allied Services Project.
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J. P. Mr-BRIEN - 2 October 16, 1973
In lieu of the Commission members' being reimbursed for actual and necessary
expenses related to Commission business, it is requested that, pursuant to
the authority set forth In Section 31000.2 of the Government Code, members
of the Allied Services Commission be paid a special allowance of $10 per
meeting.
Commission members will claim the special allowance on County Form D--15,
"Demand on the Treasury," forwarding same to the Allied Services Project,
Human Resources Agency, for review and approval. The Allied Services-Project
will be responsible for verification of claimants' active status and
attendance at Commission meetings. Attached are the,names and addresses
of the citizens who are currently members of the Allied Services Commission
and who should be formally appointed by the Board of Supervisors.
It is respectfully requested that the Board Order authorize the Auditor-
Controller to establish within the budget for the Allied Services Project
an encumbrance of $2,500 for the purpose of meeting expenses 7/1/73 to
6/30/74.
REJ:ask
Attachment: List of Commission members
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MEMBERS, FILED
ALLIED SERVICES COMMISSION
t C' .23 1973
October 16, 1973
W. T. PAASCH
CLERK BOARD OF SUPERVISORS
} CON RA A CO.
Illy) Puty
MARY L. BLACKBURN (Parliamentarian) EDDIS HARRISON 233-5015
Food Advocates 642-4911 Richmond Elementary Council, P.T.A.
2288 Fulton Street 5320 Rosalind
Berkeley, California 94704 EZ Cerrito, California 94530
.BOB CLARK (Vice-Chairman) 233-9923 ETHEL HASMANN 232-9130
Richmond Black Caucus x20 American Cancer Society
2710 Wiswall 4113-A Macdonald
Richmond, California 94804 Richmond, California
KAGEY DOROSZ (Secretary) 233-7060 ETHEL HOLMES 236-2305
Central Labor Council x3731 South Side Center
320 - 13th Street 462 Spring Street
Richmond, California Richmond, California
WILLIE F. DORSEY 233-7060 MYRTLE HUNT 529-0154
Area Council of O.E.O. x3271 South Side Council
513 Grove Avenue 449 South 17th Street
Richmond, California Richmond, California 94804
ETHEL DOTSON 236-9920 RICHARD A. KELLEY 232-0363
Richmond Welfare Rights Senior Citizens Drop-ln Center
2800 Mission Bell Drive 1020 Nevin Avenue
San Pablo, California f ,w Richmond, California
MANUEL ESTRADA 232-6050 JUANITA LA BEAUX 235-4797
United Council of Spanish Community Representative at Large
Speaking Organizations 745 South 14th Street
1234 Nevin Avenue Richmond, California
Richmond, California 94801
PERKINS A. LOVELACE 529-0154
HAZEL HALL 234-6883 Coronado Neighborhood Council
Model Neighborhood Community Board 449 South 17th Street
245 South' 7th Street, Richmond, California 94804
Richmond, California
CHARLES MASON 233-3138
RUTH L. HANSEN 235-5336 County Wide Youth Program
Iron Triangle 1595 Jade Street
1100 Roosevelt Avenue N. Richmond, California 94801
Richmond, California
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MEMBERS, ALLIED SERVICES COMMISSION - 2 October 16, 1973
FRANCES MCDANIELS 235-4930 BETTY STILES 526-3956
League of Women Voters Greater Richmond Interfaith Project
5990 Rose Arbor 710 Hancock Way
Richmond, California EZ Cerrito, California
A. DONALD MILLER, M. D. , CHARLES WILSON 642-4911
Alameda/Contra Costa Medical Assn. Opportunity Childrens Center, Inc.
23rd & Garvin 2288 Fulton Street
Richmond, California 94804 Berkeley, California 94704
ADA PIERCE 234-8424 ISAIAH WINN 233-3898 ,
Las Deltas Tenant Organization Parchester Planning Commission
1616 Jade Street 705 Harrison Drive
N. Richmond, California 94801 Richmond, California
M. Al. SNODGRASS 233-6880 HYMAN WONG (Chairman) 237-5500
Council of Richmond Industries Human Relations Commission x59
4505 Macdonald Avenue 2832 Oxford•Avenue
Richmond, California 94805 Richmond, California
ALTERNATE MEMBERS
ZELDA DE PAOLI 232-6869
Las Deltas Tenant Organization
1714 Harrald Street
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Richmond, California
DOROTHY HACKETT 234-2499
Richmond Elementary Council, P.T.A.
4511 Escuela Court
Richmond, California
WILLIAM HALL 234-6883.
Model Neighborhood Community Board
245 South 7th Street
Richmond, California
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OFFICE OF COUNTY ADMINISTRATOR
CONTRA COSTA COUNTY
Administration Building
Martinez, California
To: G. Russell, Chief Clerk Date: October 4, 1973
Board of Supervisors
From: i. P. McBrien, Subject: Martinez Copy Center
County AdminisL ator
Approximately October 15, 1973 the Office Services Division
(Central Service) of the Office of County Auditor-Controller will
begin operating a copy center in the basement of the Finance
Building for the provision of duplicating services.
The primary objective in the establishment of the copy center
is the reduction of county Xerox costs. In addition to reducing
the overall county Xerox costs, which will result in decreased
costs for departments, the copy center will provide additional
services not currently available to most departments, such as
collating, copy size reduction, and double side printing.
Initially the copy center will process jobs of up to -500
copies per original with no limitation as to a-minimum number of
copies . Eventually there may be a minimum established depending
on the volume of work processed by the center after it becomes
fully operational.
The copy center, which will be staffed by a full time position
under the supervision of Central Service, will be equipped with a
Xerox Model 7000 and five 10-bin collators for a total of 50 bins
which can process 50 documents of up to 150 pages each. The bulk .
of the work will flow to and from the copy center by means of a
pick-up and delivery service operated by Central Service. The '
Central Service foot messenger which serves county offices in
downtown Martinez and the copy center clerk will provide the pick-
up and delivery service with the objective of providing a turn-
around time of four to six hours. Special provision will be made
for certain recurring prioiity work such as agenda, calendars, and
minutes which must be processed immediately after the preparation
of the original document. Items in the aforesaid category will
be scheduled in accordance with the needs of Lhe various user
departments. Emergency jobs which occur intermittently can be
handled on an ad-hoc basis. CE T'D
OCT 9, 1973
W. T. PAASCH
��,/� CLERK BOARD OF SUPERVISORS
�[ '`.'S'U'''' ` TRA COSTA CO.
2y Deputy
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User departments will be billed for the cost of services
provided by the copy center. Single copy work such as size
reductions will be billed at the rate of S cents per copy.
Multiple copy work will be billed at an estimated rate of .015 to
.020 cents per copy. The actual cost per copy for any given job
will depend on the run length of said job as well as the total
voltune of work processed by the copy center in any given month.
If a substantial percentage of copy work is shifted from-- depart-
mental
rom depart-mental machines to the copy center, it is estimated that the
majority of the work processed by the copy center will be charged
out at an all-inclusive rate of about .015 cents per copy, .which
is approximately one cent less than the average usage cost charged
by Xerox for copies produced on departmental copiers.
In this connection there is enclosed herewith a Xerox usage
report regarding your departmental copier during the first six
months of 1973. In addition to other data, the report shows the
total number of copies in each month, the average number of copies
per month for the period,. the total bill for each month, the
average monthly 'bill, the cost per copy for each month, and the
average monthly cost per copy.
It is requested that you utilize the services of the 'copy
center to the fullest extent possible to insure the successful
establishment of this new service. With the cooperation of all
county departments it is my belief that we can reduce the overall
county cost of duplicating equipment, reduce supply costs, and
effect labor savings at the departmental level.
If you have any comments, suggestions or questions about any
aspect or the proposed new service please contact Mr. Terrence
McGraw of my staff or Mr. J. J. Prideaux of the Office Services
Division of the Office of County Auditor-Controller.
Prior to the effective date of the new service you will
receive notification as to the exact date together with a supply
of work order blanks and instructions for routing the work to and
from the copy center.
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n ,
Human Resources Agency
Health-Medical-Social Service t
Robert E. Jornlin, Director
CONTRA COSTA COUNTY
651 Pine St., Martinez 94553/228-3000
October 18, 1973
Supervisor Alfred M. Dias
4300 Garden Road
El Sobrante, California 94803
Dear Supervisor Dias:
This letter is to introduce to you the legislative Task Force
of the Allied Services Project of Contra Costa County.
Enclosed is an excerpt from the White House Fact Sheet on the
Allied Services Act of 1972. It describes the legislation that seas pro-
posed and provides some background. Prior to Congressional action, the
legislation was withdrawn and is currently being redrafted in the Office
of management and Budget.
As you know, the concepts in the Allied Services Act are being
pre-tested under the authority of the Secretary of the Department of
Health, Education, and Welfare. With Board of Supervisors authorization,
Contra Costa County applied for and was awarded a project grant to design
a pre-test. Under P1r. R. E. Jornlin, Director, Human Resources Agency,
the Project has been operating since July, 1972, and has been renewed
through June, 1974.
The approach of this Project has been to form five Task Forces,
which operate under the direction of the Allied Services Board (composed
of the directors of the largest human service agencies and the County
Administrator) and the Allied Services Commission (composed of representa-
tives from community organizations). These Task Forces are developing
recommendations which, hopefully, will result in the development of a
service-delivery system which will provide better human services in the
Richmond area through increased integration and coordination of the agencies
providing those services. There are four Task Forces working on designated
social problems. The problems selected by the Project are: (1) drug and
alcohol abuse, (2) services to the elderly, (3) child care, and (4) lack
of vocational alternatives.
RECIVIED
-� a. VMK- . - N.R.A-
G ..2S PAASCH
C } BOARR D OF SUPERVISORS
ONTRA COSTA CO.
(,(it. D• ��.�tQ �— / /��/�'_ , gy Deputy
I�
I
Supervisor Alfred M. Dias - 2 October 18, 1973
The fifth group, the Legislative Task Force, is concerned with
legislation and regulations which affect the integration and coordination
of human services, consumer protection, adequacy of financial assistance
and services to welfare recipients. This Task Force is evaluating the
wording and potential impact of the proposed Allied Services Act, and we
are developing recommendations for the Allied Services Project.
We invite your cooperation and participation with the Task Force
in identifyin legislative and regulatoryimpediments to im ementin an
irate rq ated an coordinate,' serv4ces system. Will you please provide our
Task Force with a brief statement on the lairs and regulations that are
needed or that block the goals of Allied Services.
tie realize that the Board of Supervisors has responsibility for
the entire Allied Services Project and that the operations of the Project
have been delegated to the Human Resources Agency. However, we are interested
in the issues that occur at the Board's eolicy level and would appreciate
any comments that you may want to communicate to us.
Very truly /ours,
ETHEL DOTSON, Chairperson
Legislative Task Force
Allied Services Project
r -
FOR I ELEAS AT;2:C'.::;00M(EW) .. May 1E, 1972
1
Office of 7110 I"'hite!louse Press SCcretary
r INE I'll IITE IIOUSE :
. FACT S'HEET
ALLIED SEI liCES iMESSAGE
THE ALLIJED SERVICES ACT OF 1972 What Allied Services is hitended to Accomplish
Dackgrou::d: - *Ac lefjslation would (I)enable a coordination of
com-plementary but currently separate scrv;ces at St=te and
-Over tlra past forty years• and particuL:ly in the last local levels and (2)protide the necessary tools to _:lour
d9c3de, t::_ Fcderal Government has lcg:Sated a host of State and local government to eliminate bure_ucratic
rtarrow, latumn services pro^ranz. As a rc-lult,the Depart- obstacles. This is r-cccssary in order to promptly treat
relent of I erl:' now administers over 200 categorical • social needs and speedily remove social dependency.
health, educational and social services prodra_zs. This
proliferation of I eder.-1 scrvicas is aimed Pt dealing with a
multitude of huni2n needs.
7: VilIAT TIIE ACT WILL D0:
However, these separate and spccializcd programs result in
services wi»ch are: For Vie People Served: -
: Y delivered in a fra;mented way which does not meet 1. Provide for comprehensive problem diagnosis and
the multiple needs of people, service planning.
O without common goals, common service areas, or 2 Enable a range of services to be accessible trrcuoi
common planning processes designed to remove integration of separate service institutions.
pcopIc from dependency,
• 3. Transfer the •burden of responsibility for getting
_ O inefficient, duplicative and confusing for people in _ appropriate services assistance from the people to
- need. the system.
O lacking in accountability due to their failure to 4. Improve convenience through consolidation and
involve State and local elected officials adequately simplification of forms and procedures.
in the human services plauuing process.
} For Govcnuncntal Effectiveness:
ij From the perspcctivc of the pcop!c served:
j 1. Bring State and local elected officials more directly
o they are not treated as whole persons•having into the delivery ofscrviccs business.
hiterrclatcd needs.
2. Encourage the creation of State and local integrated
O the burden for navigating through the system is on t service plans throu0t a project planning grant
the p.op;e not the service providers. authority.
o they often have prolonged needs for public services 3. Authorize the Secretary of HEW to waive cate;ori-
because their rroblents are not eomprchensively cal, rcgulatory and technical provisions which im-
diagnosed in the first instance. pede the integration of scriccs.
O they become frustrated with overlapping arencies 4. Insist as a prerequisite for State planning aid that
and lo3c ctnifideacc to goveU;ntcjit 3t AI levels. eo:-.-on ;::vice'areas be est•tl:ltshcd,
i�
• _�� S. Authorive the rcut-atid: c hlant►ing
. of all Ili:1:'aelauni-ICICLI I%%01 arms.Wi f in State
and local Allicd Services programs, into a siugte
planning brant. '
6. Permit the trmusfer of funds inion;specified NEW -
1 • program:to achieve nuximunt cflcctivcness:
- 111. 1101Y TI IE BI LL M LL WORK
O As a first step. the Governor of a State must choose to
participate and desigtate Common scr ice b6undarics.
.• Local plans would be devclnt)cd by local elected
officials, or combinations thereof,%, h would involve
the various public and private providers of human
services. '
.0 Local plans would be consolidated by the Governor .
into a State Plan for approval by the Secretary of
F1E•Iv. .
o A minimum of four human services programs, includ-
ing the public social szr%ices program,must participate
In State and local Allied Services plans.
IV. WHAT THE• BILL PROVIDES IN ASSISTANCE
- o Make available rcdcral assistance in the form of
planning and implemnttation grants,fund transfer,and
umiver authority,for State and local officials. .
_ • Provide incentives for the planting and implementation
of goals rather than impose mandatory nation-%tide
standard requirements. ;
• Authorize State and local elected officials once plata
arc approved. to trartsfcr up to of HEW funds
betx%ecn programs included in the plan depending on
. ' . their priorities.
o Permit the Secretary of HEW to wait statutory or -
r regulation-based restraints and provide Grants to cover
_ start-up administrative costs of putting these systems in
operation.- - -
• Emponcr the Secretary and the States to consolidate
the planning authorities across the programs partici-
pating in State and Ioc-J AMcd Services plaits.
V. WHAT WILLTHIS COST
• It is estimated that up to $20 n-Mon would be
rcqui:cd for pl►nning and implementation grants in the
first full year.
• Fed:ral prograttts subject to being eoordinzted under
• the AlUcd Services Act involve s:veral billion dollars.
•2
t
i . E.JORNLIN • • '/
OIRLrT011 SOCIAL SERVICE QErARTMBNT
RECEIVED
CONTRA COSTA COUNTY
i,lrcl111J _ 3
MEMORANDUM W. T. PAASCH
CLERK BOARD OF SUPERVISORS
C NTRA COSTA CO.
9y � _ Deputy
TO: BOAR OF UPERVISORS
FROM: R. nlin, Director, Human Resources Agency DATE. May 21, 1973
SUaJECT: PR SS REPORT ON THE ALLIED SERVICES PROJECT
On February 17, 1973, 1 presented a report, "Progress of the Allied
Services Project, Contra Costa County," and on April 30 1 presented
a report on some of the findings of the Allied Services team from NACO.
This report is to bring the Board up to date as to the progress of the
Project to date.
As you gentlemen are aware, the Director of the Project was not brought
on board until December 6, and as a result we were somewhat delayed In
generating the work phase of the Project. One of the first tasks to be
completed was the development of a work plan to expand the scope of the
Project to reflect an Allied Services approach. This was completed the
first week of March and has been submitted to HEW. During this process,
two additional staff members, that of Social Planner If and Community
Participation Organizer, were added to the Project to enhance the work
effort. One position remains to be filled -- that of Programmer-Analyst
but we are awaiting the results of discussions with a private firm before
determining the need to fill this position.
As part of the work pian, and in order to establish communication among
various administrative and agency heads, a body was formed composed of
the County Administrator, Police Chief of Richmond, County Probation
Officer, Model Cities Director, Assistant Richmond City- Mayor, Superin-
tendent of the Richmond Unified School District, Medical Director, Social
Service Director, Health Officer, and myself, which has a working title
of "Allied Services Board." The purpose of thi-s Board Is policy making
for the Project and as the basis of authority for said Project. This
Board has been meeting on a monthly basis and is providing the members
with an opportunity to facilitate joint planning in a number of areas.
In addition to the Board, a body was formed made up of residents from
the Richmond area and has the working title of the "Allied Services
Commission." Theup rpose of this Commission is to provide community
Input into the planning process. As a mechanism for developing member-
ship on this Commission, twenty-five organizations were invited to have
representation on this Commission. A list of those invited Is attached
OVANCE
T
GEN. 4
FOR YOUR INFORMATION
BOARD OF SUPERVISORS - 2 May 21, 1973
for your information. The Chairman of the Commission also sits on the
Allied Services Board.
At present, both bodies are involved in decision-making regarding the
social problems the Project will concern itself with_ It is felt that
by identifying mutual areas of concern in which various agencies are
providing similar kinds of service, coordination can be effected to
improve said services to the community. With the selection of the four
or five social problems, fact-finding Task Forces will be convened com-
prised of staff from the affiliated agencies and Commission members
whose responsibility will be to study the social problem assigned to
them and present recommendations to the Board and Commission for their
approval and action. It is felt that in concentrating on these areas
where both the agencies and the community feel a need for improved
services, we can develop the linkage mechanisms which HEW is looking
for in its service-integration projects, of which the Allied Services
Project is one.
Due to changes in fiscal policy by HEW, we were notified that even
though this Project year is to run until October of 1973, it was
necessary to insure funding for fiscal year 1973-1974; therefore, we
had to submit an application for continued funding for the Project by
May 7. Due to the fact that we were given such a short lead time to
accomplish this complex task, we have forwarded the application for
refunding to the Department of Health, Education, and Welfare. We felt
that, because of this Board's support of Allied Services, this action
was required on our part to insure continuity of the efforts already
Initiated. We have requested a renewal for fiscal year 1973-1974
totaling $141 ,565. A copy of the reapplication has been given to the
County Administrator for approval of the Board of Supervisors. We anti-
cipate completing Phase I of the Project in October, 1973, at which time
we should have developed a feasibility study indicating linkage mechanisms
to be effectuated which lead toward service integration. From October,
1973, through June, 1974, we will be experimenting with the feasibility
study and preparing for implementation July 1 , 1974.
In summation we feel that though we had a late start in this Project,
our progress has been accelerated and much of the lost time has been
made up. However, continued effort will have to be made on the part of
all participants in this_Project to insure an effective end product. it
Is hoped that that end product will reflect both an organizational and
_attitudinal change in the way the human service programs are implemented
and administered in this county.
JAM:ask
Attachment: List of organizations
COMMUNITY ORGANIZATIONS REPRESENTED ON
THE ALLIED SERVICES COMMISSION
Alameda/Contra Costa Medical Association
Opportunity Childrens Center, Inc.
Las Deltas Tenant Organization
Central Labor Council
Coronado Neighborhood Council
South Side Council
South Side Center
League of Women Voters
Richmond Elementary Council, P.T.A.
Senior Citizens Drop-In Center
American Cancer Society
Rollingwood-San Pablo Senior Citizens
United Council of Spanish-Speaking Organizations
Iron Triangle
Area Council of the Office of Economic Opportunity
Richmond Welfare Rights
Model Neighborhood Community Board
Greater Richmond Interfaith Project
Council of Richmond Industries
Richmond Black Caucus
Contra Costa Youth Development Program
Human Relations Commission
Black Business and Professional Organization
Atch i son Village Neighborhood Counc i i
Parchester Neighborhood Council
n
. y,'
i
I
�C
In the Board of Supervisors
of
Contra Costa County, State of California
April 30 1911
In the Matter of
Report on Site Visit by
National Association of
Counties Allied Services
Team.
Mr. R. E. Jornlin, Human Resources Director, having this
date appeared before the Board to present information on a visit
to the county by the National Association of Counties Allied
Services Team; and
In connection therewith, Mr. Jornlin having submitted to
the Board a memorandum report :dated April 27, 1973 (a copy of which
is on file with the Clerk of the Board); and
Mr. Jornlin in his oral presentation and in his written
report having indicated that said team was favorably impressed
with the Allied Services Program being undertaken by the county;
NOW, THEREFORE, on motion of Supervisor E. A. Linscheid,
seconded by Supervisor J. P. Kenny, IT IS BY THE BOARD ORDERED
that the aforesaid written report of the Human Resources Director
is hereby -ACKNOWLEDGED.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. P. Kenny, J. E. Moriarty,
E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: Supervisor W. N. Boggess.
1 hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
Witness my hand and the Seal of the Board of
cc: Human Resources Director Supervisors
County Administrator affixed this d f
_ ay of l , 19 �
W. T. PAASCH, Clerk
By Z Deputy Clerk
JS.Lsle Igo
H24 4/72 10M
n. L". JORNLIN •
oiAeeron SOCIAL eL•RVICE DEPARTMENT
CONTRA COSTA COUNTY
MEMORANDUM
TO: BOARD,OF SUPERVISORS -
1 /
FROM: R• jL• rnlin, Director, Human Resources Agency DATE: April 27, 1973
SUBJECT: REPORT 014 SITE VISIT BY NATIONAL ASSOCIATION OF COUNTIES
ALLIED SERVICES TEAM
0
In my report to the Board on March 20, 1 informed you that the National
Association of Counties Allied Services team would visit this county
from March 20, 1973, to March 23, 1973, for purposes of doing research
in regard to the Allied Services Project in this county. During their
visit here, they met collectively and individually with 31 representatives
who encompassed state, county,' city, and private agencies involved with
the delivery of human resources. A list of the participants has been
attached for your information.
At the close of their visit, they met with me and Mrs. Judy Ann Miller,
Allied Services Project Director, to report some of their initial findings.
I would like to share some of these findings with you. They are broken
down into two parts, (1 ) General Themes and (2) Recommendations, and are
as follows:
I . General Themes.
A. In interviewing the participants, evidence of strong ties between
the County and the city of Richmond were emphasized repeatedly. '
B. The fact that most of the supervisors had had experience in
serving on city councils was a possible factor in having good linkage
between county and city.
C. Universally, there was a very positive feeling about the Human
Resources Agency.
D. There was general support for deemphasizing categorical-grant
programs, with the qualifier that if this is accomplished it should be
through single-line administration and the program should be all-encompas-
sing.
E. There was a universal lack of understanding of the Allied Services
Act.
E '' '' T
APR �61973
W. T. PA,A8CH
CL"RIS DOARD OF SUPERV180RS
COST CO
GEN 91 nv ,
��''ix }t s!,. i t . `; � - y s; e a t;i y�'w,i"*,`R,. ,'•s?,"g'* „,rtar�"�� `�fV -,
��'��''* ,. ,.e :• e °;F {s'�t,St 1.C.. a 5:a ,`. �`>✓iY 4- i � to f :t5 ae '.�-�,'.�ysa, r?5`� "c�.�=S�+ 4 ..; f � �.iti� ��.
'�"`� ;�n'�'S`^J� :ir-'.'Ni`:�ks`F 4 �+k�d. �ll... ,+3J�3:.,f6"-nzi�•q"� ,�i�+t'4 f�.;rF,z.'.�.r�L `.�`�u't�Fe.�lE.zik�.,�„ � �` .�# :,�¢SX:m,�a ki !
BOARD OF SUPERVISORS - 2 o April 27, 1973
F. in regard to the human services, there has been poor utiliza-
tion of the computer, and at present not much of an information system
exists in this county.
ii . Recommendations.
A. With passage of the Allied Services Act, the subgovernmental
unit mentioned in that act should be the county government.
B. The development of the Project, especially the method of incor-
porating administrators from,the various agencies, was thought to be
excellent and should be encouraged to proceed along thg guidelines
already formulated.
C. The project should develop 'a practical way of explaining the
Allied Services Act through a fact sheet, a statement of objectives,
and a summary of the Allied Services Act.
D. Emphasis should be placed on alleviating the problem of Informa-
tion systems. in this regard, NACO would make the services of Mr. Fred
Lundberg, Information Specialist, available on a limited basis to do
consultant work.
The over-all general impression by the NACO staff Is that we have a
number of excellent programs being carried out In this county. We are
very progressive In our approach, and the team was very enthusiastic
about our efforts and was able•to obtain a great deal of information
which will be helpful to NACO and HEW. A more detailed report will be
completed by the team that should be available In June and will be brought
to the Board's attention at that time.
Attached also for your information Is the article from County News, dated
April 6, 1973, covering NACO's visit to this county.
JAM:ask
Attachments: List of participants
Newspaper article
r'b 4 �f 1 { -. s :c i a � �;.' � ty=t 3 ;� a 11 4U t t� a „?u+4t�t .''�.�•# . �, 4�'�+� - ef:- '� Xp:,"�"y,f.J�, f.
PARTICIPANTS
Donald Crawford, Human Resources Agency
Al Croutch, Human Resources Agency
John Davis, Probation Department
Dr. George Degnan, Medical Services
Lucy Ellison,
Regional HEW
�
Tom Farnsworth, Captain, Richmond Police Department
George Feller, Allied Services Project
Bessanderson Franklin, Allied Health Project
Grant Greer, Allied Services Project
Bill Haefke, Human Resources Agency
Art Hatchett, Model Cities
ocial Services Agency
Robert Hoffman, S
Pat Jones, Model Cities
Director, Human Resources Agency
Robert E. Jornlin,
James Kenny, County Board of Supervisors
Dr. Glen W. Kent, Health Department
J . P. McBrien, County Administrator
Judy Ann Miller, Allied Services Project
James Moriarty, County Board of Supervisors
Bob Mullen, Richmond Unified.School District
David Nitchman, Data Processing
Madelaine O'Caliaghan,. Soclal Services Agency
Lourn Phelps, Chief, Richmond Police Department
i� P S&:y.;-11 t rq':.�'��� { S l: ° i t P�x{'+.r i : . s r,,� � '+,v 1t t i'"rta�; +^.;4'�.La;„pc{tet^ .,i rye,,�R.+t � ��.L�.. ,r� "t„.ef ,•� ''}.e. S",-, .,.j�
3{. .�� .r� �T�^ L?. F 1 y. t• 4 z , `2^fF,. .y5.".r t ,f 3k 4p,.�' moi" X �ey.•�C~�^h .k.�:��as",
' •
PARTICIPANTS - 2 f
Fred Ricci , Intergovernmental Relations State
Nick Rodriguez
Florence Scott, UBAC
Tom Stevens, Human Resources Agency
Warr
ington Stokes, Human Resources Agency
Glen Taylor, Data Processing
Terry Thomas, intergovernmentalRelations - State
C. C Van Marter, Social Services Agency
Rr.
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-�'� i � ...„�±'u1. � �•..� � .'s r. � � } �#: q �y 9a 5r r�$ k tr .+r ' ��i,�'#'3e L9� � ?��� K�"y,� r � 5.. � r f'���
ti
�.� a c' :,�.3, ,. ..ni7f. xY,;;o^,'r. � n fi- ,r � �,�;, u., i�q5 "9t r.,£"*"^?�§.#7 tijh �.:.� �-•. � '��:�, <..�:<q �� ��cvl i h,�:�.$fi�r��rt.
�i',,.,� �t�ti,Ff, t .�€{i,. 4�•'";'"�o;t � ,.f,!'. o x^t:+e.�". ai,rt� ,epi ^F,��...c x i'��"�,.zJ�:'c'�ai. .�. .iaakafi,#' rnE., ,#a#.L '�:u�*, �'�2a,°Y$x .V f,, It +�.c,., U.s a °
- ,Dr. Ellis Sox; Deputy Director oo
• the Maricopa County Health
' Allied
.
Department, served as host to the
�,,�� ��� team during its visit, slid was
responsible for setting up meetings
bet.w'cen the tenni members `ind
various hitman services providers
Project within tile., county. Although the
team was unable to visit all of the
332 agencies; (public and private)
3
Advances providing; human services in _
Iviaricopa County, it was able, with
Dr. Sox's assistance, to visit a
by Mary Amsden Gooch representative cross section of
Research Associate agencies, and came away from the
Allied Services Project county with substantive
Maricopa County, Ariz. and
information as to the status of
services integration efforts
Contra Costa County, Calif. were underway. 'Tlie team was impressed
two sites visited (luring; the past with the generally favorable
month by teams from the National p g San Diego County, Calif, joined the
Association of Counties Research response among the staff members
Foundation's (NACORF) Allied toward the Allied Services concept team as county human resources
Services Project (see County News, and feel certain, with the able specialist.
5 No. 1 Janus 12, 1973 . (Continued on page 6) The team was hosted by Robert
Vol.1. 5, No. 1, a thvisits12, was to Jornlin, Director of the county
collect information regarding each leadership of Charles Miller, County human resources agency, and Judy
county's efforts toward integrating Manager, and Dr. S.F. Farnsworth, Ann Miller, county Allied Services
Assistant County Manger for Health Project Director. Contra Costa
its human services delivery systems, slid Community Services, that the County is one of the two counties
and provide, where feasible, any county is well on its way to an in the country receiving HEW
technical assistance that might be efficient and manageable human Allied Services research funds and
helpful to further the involvement. services delivery system, therefore, is in a position to assign
The team also discussed the The Allied Services Project Team staff to work full-time toward
proposed Allied Services Act with visited Contra Costa County during integrating their human services
county officials and staff in order the week of March 19-23. In delivery system. The project is now
to obtain suggested ways in which addition to the NACORF project in its beginning stages, but due to
the Department of Health, staff, Dr. Lundberg, McGavick, and an excellent working relationship
Education and Welfare (HEW) can Prank I'anarisi, Administrator of between the county Human
improve the bill from the county the Human Resources Agency for . Resources Agency and other public
,government point of view. Other
counties to be visited during the and private service providers within
project are: Marion County, Ind. the county, it is expected that, a
(April 10-13); Orange County, N.Y. high level of services integration
(April 24-27); Blue Earth County, will be reached during the coming
Minn. (May 22-25); and Shelby months.
County, Tenn. (June 5-8). C o n t r a C o s t a County
'. Each Allied Services Project Administrator J.P. h1cBrien and
Team consists of . a county County Supervisors James P. Kenny
management specialista county and James E. Moriarty expressed
human resources specialist; urban, strong support of the allied services
information systems specialist, Dr. concept and endorsed the efforts of
Fred Lundberg of the University of NACo and the county in pursuing
Cincinnati; NACORF Project such a goal. The tvain was very
Director, Al Templeton; and enthusiastic about the county's
NACORF R e s e a r c h efforts and was able. to obtain a
Associate/Writer, Mary Gooch. The great deal of information which will
county specialists in management prove helpful to NACo and HEW as
and human resources are drawn we work toward outlining a rafiondi
from six county based employees approach to allied services.
from across the country who serve
the ' Allied Services Project as
technical assistance experts.
The team visited Iaricopa
County during the week of Feb. 26
March 2. In addition to the
NACOR11 project staff and Dr.
Lundberg, Joseph McGavick,
Directo; of the Department of
Budget tuid Program Planning of
King County, Wash. served as
county management specialist at
the site. Robert Baitty, HEW
Project Manager . for the :
N/,Ap�s//C,,Oyy�RppFj(A(�llc'yd(y_�,Serv�ces ;Project
L µy�iVNiit lYM I�d,t*.Y'..`+M/t1 `��,f: �"1 ' �N� 4 t ) �X f' /la j1 ,! yIt�to X ,«� `t"?•.f. k 4w 1.: 5. y'.���' a:
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,..,: Y �,�n# � t i`.ai =a���' .��'��«w-.�&:�:�t>+ <%tc?,...'` fix` im�r^? n.' � e,,:�ai•7,K t, �+;'�+ '"r "r�'�i' � PI � �'dR.- ' '''�
R. E. JORNLIN
/bipacToR SOCIAL SERVICE DEPARTMENT
CONTRA COSTA COUNTY
MEMORANDUM
TO: Board of Supervisors
FROM: R Jq;k1n Director, Human Resources Agency DATE: March 19, 1973
SUBJECT: ALLIED CES PROJECT - ON SITE VISIT -BY NATIONAL ASSOCIATION OF COUNTIES,
ALLIED-S" VICES TEAM
As the Board Is already aware, this county has been chosen as one of the
six pilot counties by the National Association of Counties for the purpose
of doing research In regards to the Allied Services Project In this county.
Last month Mr. Al Templeton, Allied Services Director for NACO, made a
pre-site visit. He held numerous discussions, one of which was with the
Human Resources Committee of this Board, and as a result of these dis-
cussions, It was agreed that the NACO team would visit this county
March 20, 1973, to March 23, 1973.
During their visit here, the NACO team will be meeting with participants
from county, City (Richmond) and State government. For your information,
I have attached a copy of their agenda which lists their activities.
An orientation meeting Is scheduled for March 21 , 1973, 8:30 - 10:00 A.M.
In the ninth floor conference room. We are Inviting the Human Resources
Committee to attend, as well as any other Board member who Is Interested.
For additional information I have attached various NACO news articles which
discuss NACO's Allied Services Project, as well as resumes of the Indi-
vidual team members who will be visiting.
Should any member of the Board wish to meet with any member(s) of the NACO
team, please contact Mrs. Judy Ann Miller, Allied Services Project Director,
who is coordinating the NACO visit.
REJ:mc
Attachments
REGETVE
W. T. PAASChl
CLCRK ROAFID OF SUPERVISOR"
Cy ptuty
GEN.9
gk
_0
i
MEETING AGENDA
NACO TEAM
NACO Team RE.
Jornlin
Tuesday,
March 20, 1973 - JudyAnnMiller
7:30 - 10:00 P.M.
1973 Orientation: NACO Team - Participants
March 21 ,
Wednesday, 9th Floor Conference Room
County Administration Bldg.
8:30 - 10:00 A.M.
10:00 A.M. - NOON
I . Mr. McGavick - Mr.
McBrien (County Administrator
County Administrator's office - 2nd Floor
2. Mr. Panarisi - Miss Florence Scott
lornceScott (UBAC)
Mr. Stokes' Office - 9th Floor
3. Mr. Templeton - Mrs. Ellison (HEW)
Mini Conference Room - 8th Floor
4. Mr. Lundberg - George Feller (Allied Services Project)
Glenn Taylor (Data Processing)
David Nitch`Bann (Data
Processing)
Carl Pirot
Bill Haefke (Human Resources Agency)
Robert Hoffman (Social Services Agency)
9th Floor Conference Room
12:00 NOON 1 :30 LUNCH
1 :30 - 3:00 P.M.
1 . Mr. Lundberg's Group - Continued Discussions
9th Floor Conference Room
2. Mr. Panarisi - Mr. Jornlin (Human Resources Director)
Mr. Jornlin's Office -- 8th Floor
. Templeton - Fred Ricci ( Intergovernmental Relations- State)
3. MrP
Terry Thomas
Mini Conference Room - 8th Floor
ff5
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I ,
-2-
Thursday, March 22, 1973
Individual meetings to be scheduled)
a,
Friday, March' 23 1973 � k
t
Mr. Templeton - Mrs. Mill
er '(Summary, meeting to be..arranged at
Mr Templeton's convenience) '
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NACo Gets $119,000 Grant To Study Human Services
(Editor's Note: Tris is tire first to be selected), of great encourage dialogue among
of a four part series on NACo's importance will be our role of county, city, state and federal
Allied Services Project.) calling to the attention of all officials about problems faced
NACORF has received a counties the thrust of services by local governments in human _
S119,355 research grant to integration. services delivery and will work,
study the integration of human Because federal agencies specifically with the six pilot
services delivery in six coupties often inform local officials counties, to assist county human
In funding this project, the about legislative developments services agencies, and other local
Department of Health. and programs at the eleventh organizations, to develop
Education, and Welfare (HEW), }tour, county human service strategies.
has asked NACo to provide agencies and other local service The final study will
technical assistance to county providers often have to meet the document procedures and
governments as they develop a specifications of a particular techniques which have been
capability for services federal ant program without developed during the project and
integration and to compile data having the time and resources will capitalize upon the
helpful nationally and locally in cumulative knowledge of
needed for long range planning.
pretesting the proposed Allied This can leave agencies and counties with prior experience in
Services Act. human services integration.
Counties, with their role of service recepients inadequately NACo expects this study to
general purpose government and prepared• be used extensively by HEW in
their experience in providing NACo feels that effective developing legislation and
human services, provide an ideal health and welfare programs are altering the proposed Allied
mechanism through which a an important part of a county Services Act. It is our intent to
variety of social services can be government's response to its poll the pilot counties through
allied, =article
.+„�,�,.� on-site visits and other counties
NACo has found about 1100 is reprinted from througli NACo meetings and a
of 3,068 counties are directly NEWS-January questionnaire to determine what
administering public assistance2 1973. legislative language would be
and Title IV•A service programs. constituency. At the present most helpful to our members
Adding those counties which time, human services are and in the best interest of good
may not administer and finance typically provided, managed, social service planning,
public assistance social services, and controlled by various During the course of the
but do finance and administer combinations of private project, each of the six pilot
other human service programs organizations and governmental counties will be visited for
(i.e., health, mental health, agencies within each county; approximately three days.These
juvenile delinquency,manpower, The counties particular role is visits will then be followed up
and education), almost every also subject to its states' by telephone conversations and
county is involved in human structure. This diversification of by an additional technical
services delivery. service can result in costly assistance visit if necessary.
duplications and omissions. Each site visit team will be
Definition Therefore, studied approach to composed of the project
Services integration is most integrating the activities of the director, the research associate
simply defined as the linking of various service providers could writer,two county-based experts
administrative services(i.e.,joint aid governments to better serve from the fields of county
planning, co-location of staff, the needs of its people. management and county human
joint evaluation, purchase of resources planning, and an
service) and or direct provision Promote Services information systems export.
of services(i.e.,outreach,intake, Though NACORF's research These t e ams will be
diagnosis, case conference) to grant is limited in scope, the responsible for providing
citable a number of service Allied Services Project will technical assistance to the
providers to treat an,individual:c. attempt to promote the concept county and retrieving data for
or family's need in a more of integrated service delivery by the final report to MEW. The
coordinated and comprehensive increasing the information findings will also be included in
manner than any one provider available and by broadening the
could while acting alone. focus of existing delivery
While the study's initial focus system
will be on six pilot counties(yet project staff will Continued on Each
�2'Sti._ _,�4yrxi a�rv`f �u%r.- ��.Mw 4�.:�n �". _. ...e..... .n-;:�,�' -� i .•r r: st s
future editions of County News consultant to the Department of , She has had extensive'
and in. workshops-, at.. NACo Labor's Welfare Reform experience in_ planning,
meetings. Planning staff and with local coordinating, and administering
communities in planning and drug education programs on the
PROJECT STAFF developing social service national and local levels and in
programs for federal funding. the editing of, a weekly
AI Templeton has joined the Templeton was associate newsletter on drug education.
NACo staff as director of the director of the Day Care and Ms. Gooch has also served
Allied Services Project. Child Development Council of with the West Africa Desk of
America. He has worked Peach Corps/Washington,. with
extensively with community V1STA's,legal.services program,
action agencies, was-executive ,,. }� ti.
director of the DeKalb County
(Ga) Economic Opportunity
Authority, served as a
community action technician X14.4
with the Council of the
Southern Mountains in
Appalachia, and did technical
,assistance consultations.with a
number,of local agencies.He has
also taught junior and senior
high school.
,Assisting the, project as
research will . be Ms. Mary
Gooch, Ms. Gooch .comes 'to
NAGo from the. National
AI,Templeton Coordinating Council on Drug Mary Gooch .
~immediately prior to joining Education whero.ahe.served for ;;and with Project Upward Bound;
NACo, , he ..worked as a j three.years,as assistant.ditector, a secondary education program.
+,z�• x ` ;.z!:t s;T,;, S4v,,;,Y: �.-.F. t�1!. t+,}�,t.�< 7sv g7 'r`^.61' f t "`� t:. k+ a 1 ,t'T• t ? :•! t 5.1 .x.� ? .:5. � �.r �' t '�-a'" .
w, kR rA,t2 x�i" 33 .?.fr7 x��`t y'�F'� ,yi�'a'�i` �M`i�4.°,y.�'!. ".".�.-�,„ .Y`i, a.rt...S.�.s''nY� Y49,S�w�.f} f5r v�'.�• .Lk "lri ktS �,.�.?.,,� i�r-� f it.; ks+r'ff*�;'„� -1. r..a_
n:4 F,� t.u_�E'v}��Y.ess�c'+Z'�? � :c . 3 ;�'�` � � ,�'�k �i' "�?'@`�s j v _�y �3� k '� �'.�r�;l�,��5>td� � � ki�i'���� h •� ���+ `' .. ,'2��•^ +'��,�x”'
is In HumanResourcesEx er
To Discuss Allied Services
Editor's note: This is the administrative management County, Calif.
second part of a series on and personnel officer, Donald F. Weber, senior
the National Association of Cooperative Extension executive assistant to
Counties Research Service of Cornell County Executive John L.
Foundation 's ' Allied University (involving 56 Doyne, Milwaukee County,
Services project. county extension Wisc. Weber also served as a
Experts from the fields associations), and was member of the Milwaukee
of county management and director of chapter and C o u n t y Board o f
human resources will meet membership services of the Supervisors from 1960 to
this week on National American Society for Public 1966.
Association of Counties Administration. The workshop has been
Research Foundation's Joseph L. McGavick, designed and will be
( NACORF) services county administrative conducted by Fred J.
integration effort. During officer, King County, Wash. Lundberg, director of the
the coming year, these McGavick is a member of Institute for Urban
experts will join the the State Advisory Information Systems,
NACORF staff in providing Committee of the U.S. Civil University of Cincinnati. It
technical assistance to six Rights Commission and will run for three days and
pilot counties in connection served in the Washington serve as a traiping forum for
with the Allied Services S t a t e H o u s e o f these county experts and
Project (see County News, Representatives where he NACORF staff prior to the
Vol. 5, No. 1, Jan. 12, was a member of the pilot v i s istations in
1973). Appropriations Committee , connection with the Allied
Joining the NACORF vice-chairman of the Local Services Project.
staff and representatives Government Committee, Sessions will be held on
from the U.S. Department and a member of the the objectives of the
of Health, Education, and Committee on Education project; a study of some
Welfare will be: and Libraries. pertinent efforts in services
Mrs. Lois Blume, dean of � integration that use
continuing education, This article is reprinted from information systems
Adelphi University, Garden COUNTY NEWS - January technology, including the
City, N.Y. Mrs. Blume 19, 1973 Chattanooga System, the
formerly served as the Nicholas M. Meiszer, Deportment of Health,
executive director of the county manager, Forsyth Education, and Welfare
Nassau County Drug Abuse County, N.C. Meiszer has project at the University of
and Addiction Commission also served as City Manager Cin c i n n a t i, and the
and as federal and state aid Department of Housing and
in Henderson, Ky. and Urban Development's
coordinator for Nassau p
Gulfport, Fla. and as stems Sti
f
I
Urban Information County. She has also served assistant city manager of Ury
as a consultant to NACoDayton,Ohio.
Advisory Committee
and to the counties of F r a n k P a n a r i s i , (USAC); setting goals,
Orange, Onondaga and techniques of delivery, and
administrator, Human techni ues of evaluation of
Dutchess in New York. -techniques
Harvey M. Lincoln, Resources Agency, San services mtegratian systems;
Diego County, Calif. le 'dation and legislative
executive director of the g
Manpower Area Planning Panarisi has also served as trends in the field; and in
p g executive assistant to the developing a comprehensive
Council of Metropolitan Board of Supervisors and
Dade County, Fla. Lincoln assistant chief probation workplan for pilot site
has also served as the officer in Los Angeles visits.
g The findings of this
workshop will be reported
in a future issue of County
News.
aTs,r.k,L•,,:.,., ., .._ . .. -_ ,... .... ... _"r a,dF., .. .. '_k..x .5 K! r.� � � v Sti v 5 4�`t� b a
Human Services Workshop Held
by Mary Amsden Gooch
} { +fit tt kI} a }4z 9J4r}SR+ids
Research Associate s ,xf, , .-
Allied Services Project ` ` I ' � �` " �} ' €iT"I
;00 }
-Yw
The proposed Allied
Services Act and ways in
which NACo can assist #•. ' ` a,
counties in integrating their
human services deliveryi#
systems were topics
discussed at the National
Association of Counties
Research Foundation
(NACORF)JAllied Services »
Workshop Jan. 15-18 in
Atlanta, Ga. �
Partici stingg in the l,trf tx� s
p NACo staff `1 :;., ;; : . �..•.:
meeting were �1 PARTICIPATING in Allied Services Project Workshop members, representatives p are (I
from the Department of to r) Nick Meiszer, Forsyth County, N.C.; Al Templeton,
Health, Education, and Allied Services Project Director; Don Webber, Millwaukee
Welfare (HEW) and six County, Wisconsin; and Bob Baitty, HEW Project Director,
experts from the fields of
county management of r
human resources. The � F .
workshop was designed and �' .. r°
conducted by Fred
Lundberg, Director,
Institute for Urban f w
Information Systems,
University of Cincinnati.
his article is reprinted from
LINTY NEWS-February
2, 1973
During the.workshop, a
detailed plan was
formulated for the Allied
Services Project's work with :
six pilot counties under a
grant from HEW (see DISCUSSING ALLIED SERVICES Project at Atlanta work-
County News, Vol. 5, No. shop are (1 to r) Joe McGavick, King County, Wash.; Frank
1,Jan. 12, 1973). Panarisi, San Diego County,Calif.; and Harvey Lincoln, Dade
The plan will assist the County Fla.
project staff in retrieving
detailed information on
services integration efforts Director of Federal Affairs, been delayed several times,
taking place in these spoke to the group about but are now to be issued by
counties. The characteristics social services and welfare the end of January.
of data collection for the legislation, and trends Tabor expressed a belief
pilot sites were discussed at expected with the 93rd that current funding trends
length. Project Director Al Congress. are toward special revenue
Templeton indicated that Although Congress has sharing (block grants) for
the six pilot sites will come authorized a ceiling of $2.5 health, welfare, and social
from among 31 counties billion for social services, services. Each bill that was
who have completed a HEW i s rewriting vetoed by the President in
preliminary questionnaire, regulations which could 1973 was discussed, and tlio
and that final selection will reduce permitted state and possibility for their being
b e announced in county expenditures to less
mid-February. than $1.5 billion. The Continued on back
Ralph Tabor, NACo proposed regulations have
" w;%'x' .... t, ,' .. ti, - r•- ,__ ,, ° ) . ....�7...,,..».s � :., ,.dt+.t._..5,",tY....'qtr ni3�'='Y:h�',°��'rn'�'r�sa�,i,i.�r�cs*a&.a-:+6`5.x:ax.,.t v..t3,'3.,-�t�4-'r*
reintroduced along with Systeins Interaggenc
various new bills was Committee (USAC y Ohio area. This.information
considered. ) a permits central: planning
Among the materials consortium of ten federal odies i.e.
distributed at the materials
( Community
departments and agencies,
meeting chaired by a representative Chest, Community Action
were legislative abstracts on from the Department of were ,agencies, local
OMB Circulars A-95 and Housing units of government, etc.)
A-102; the omnibus social Developmnt(HUD),Urban to view agency performance
security, welfare, medicare and changes in client
bill - H.R. 1 (Public Law USAC/HUD is currently conditions.
No. 92-603); the Revenue sponsoring the development In addition to Lundberg
Sharing. Act; and the Allied of prototype Integrated and Templeton, the
Services Act(as proposed in Municipal Information participants in: the
1972). Richard Verville, Systems (IMIS) in six cities, workshop included: Mrs,
Deputy:Assistant Secre The Inatitue for Urban Loris Blume, Adelphi
Y Information Systems.atthe University, N.Y. . Harvey
for Legislation, HEW University of Cincinnati was Lincoln, Dad County, Fla
discussed the Allied Services also- discus'sed. Under the Nick , 'Meiszer, .Forsyth
Act's future" and its direction of Lundbe this County,_';N.C.; Frank
implications for counties �'+:
(see accompanyingarticle). network' ` of information Panarisi, San Diego County,
subsystems' supplies Calif. Joseph McGavick,
Lundberg discussed some processed nformation on Kin Count
current urban information human,, services client Weber, y, wash•;., Don
systems which have Milwaukee :County,
significance ,,:for, human characte"ristics� services Wis-;; Robert Baitty, HEW
services integration at the' d e.1 fiver e d , W"6 r'k e r Project Manaagger and Mary
local! level. Amon these , p'e'rformance , and Gooch, ,NACORF/Allied
Among measurement of units of Services Project;staff.
s attar m s Tenn.
t , service delivered, by
Chattanooga, Tenn. area, individual human services '
and the Urban Information agencies in the Cincinnati,
r
r
f
t
__ 1,a i `k.- � ;nt�� �.'> ' L,�`x' ✓Y t ..3; t�` 't a.,x..n 3 nt;�:`;"z^ .� �atE � ,o-^� w - z }1
t pt .p
S 4:'t➢.
LC.
�.�. _ *„ ,.�a-��.\�',."''GaT` s {y,;"�*�'"'�.,�"t• y,, alc .e;`;u� ' .� `Si' ,�'1 .iEr� v-r, iR't, � ._44, '3 tai'sl
Allied Services Act Discussed At Workshop
by Al Templeton,Director
Allied Services Project agency in each area to assume this as consistent with special
The Allied Services Act's prime responsibility. revenue sharing and an overall
future and its Implications for In such cases where a state federal approach to channel
p might choose a lead agency that categorical
counties was discussed by Is unacceptable to HEW the g programs rota a
Richard Verville, Deputy HEW Regional Director will have system which will diminish
Assistant Secretary for review authority over that fragmentation of services,
Legislation, Department of decision.HEW has made a strop increase the people
and all of
Health, Education, and Welfare commitment to regionalization services to people and allow e
(HEW), at the National and it is felt that the ten regional better methodology to service
Association of Countiesproviders.
Offices will gain more
Research Foundation responsibility. The bill would be Verville pointed put that, if
(NACORF)JAllied Services passed, the bill authorizes
Project workshop Jan. 17, in , planning grants to local
Atlanta,Ga. 1 k governments and grants to
The bill, as drafted in 1972, '; , � t consolidate support services,
calls for governors to divide s . transportation and management
states into local service areas. `�� systems,Y ,gluts states
These divisions would take into and local agencies the right to
account service needs andtransfer HEW monies between
zL„
resources, existing boundaries of HEW programs, and offers the
Individual service programs and opportunity for waivers of
planning areas, and the location statutory and regulatory
of units of general purposeA, requirements In special cases.
government within the state. When questioned as to a
Each local plan would be possible pass-through to the
developed by local units of Richard Verville local level, he said this option
general purpose government,and optional and aimed at state was not being considered at this
each would Involve the various government,he said because the time. He felt,however, that the
public and private providers of bulk of HEW funds are currently logical "coming together" point
human services. A minimum of channeled through states and for allied services will be at the
four human services programs, therefore, they are the logical local level.
including public social services, focus.
would be manditory. Conceptually, Verville
Each governor would then explained, the Allied Services T its attic a is reprinte from
consolidate the local plans into a Act is an attempt on the part of COUNTY" -February
state' plan using a designated HEW to simplify and integrate 2, 1873
state agency. Additionally, the the programs of service delivery
governor would designate a local under it jurisdiction. He views
"•1 t } y r „...ex- ) #' G.. .*H s 4 F� r:4 •l. «�:r� k L }+
N4F
COUNTY NEWS—March 2, 1973—Page 11
Pilot - Counties Chosen .
For Allied Services
Six counties have been annual convention and
selected to serve as pilot periodic workshops.
sites with the National The six counties were
Association of Counties selected from a list of 21
Research Foundations w h o completed a
(NACORF) Allied Services questionnaire designed by
Project. They are Orange the Allied Services staff. In
County, N.Y.; Shelby selecting these counties, the
County, Tenn.; Marion basic criteria used was
County, Ind.; Blue Earth geogmphical distribution,
County, Minn.; Maricopa level of population,
County, Ariz.; and Contra demographic characteristics,
Costa County, Calif. government structure, and
The project is funded by vertcharacteristics; and
the Department of Health, e g r e e o f county
Education, and Welfare involvement in services
(HEW) and is designed to integration. The pilors
retrieve services integration represent HEW's interest in
information which will be a p heterogeneous mix of
useful t o HEW in • counties, crosscutting the
formulating the proposed four criteria.
Allied Services Act, and to
assist the pilot counties in Project Director Al
their services integration Templeton expressed regret
efforts. In connection with that more counties could
this project, the staff not be included in the
intends to disseminate study, but reconfirmed
information to all-counties NACo's intention to assist
regarding legislative dther counties 3n their local
developments -in allied 'efforts•by providing services
services and . general 'integration information, as
• information about. -local it becomes available,and by
services integration efforts. conducting .workshops *on. ,
This will .be done-.through -experience gained-' in
County Neuss, and in working with the. pilot
conjunction,with NACo's.
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Education Qradun ted frail' John • Burroughs High School,
Burbank, California., in 1952.
Graduated from Occidental College in 19561 •
with a major in Political Science.
Graduate Study in Public Administration at
California State College.
Experience Los Angeles County 1956 - 1971 '
Started as Administrative Trainee in the
Chief Administrative Office, July 1956.
Two years as Eacecutive Assistant at Olive
View Hospital.
Two and one-half years as Assistant
Division Chief of Administrative Services
in the Probation Department.
One and one-half years as L%%ecutive
Assistant with the Board of Supervisors .
Three years as D.ecutit►e Assistant and
Acsistunt E,ocut•ive Offinnr of the Board
of Supervisors
Two and one-half years as Assistant Chief
Probation Officer. .
,•.. :• ;:' �',r•. , .. •� ' aY:'2 :' 19.?1 .tri; ;prdsent•- --' •Human;Resourpes. •
� Administrator County of 'San' Diego
U.S.* Army
• Presidia ofiSan Francisco, 1957-58
' .Family Wife - Marti (Griffin) Pariarisi 'of'
. • ' • t : ' _ ;t Burbank ' ':'•r ...
' Children' - Lori) 14; Michael, 10; Craig,6
' . t Home 4924 Sunk:ise 'Valley Drive
El Cajon, California
Birthdate ' May 103•. 1933 + '
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YI
FACT- SHEET
JOSEPH L. McGAVICK
. PERSONAL
Born: Tacoma, Washington - March 30 , 1935
Residence: 4032 Burke Avenue North
Married, wife Carole Lee; Children - Michael, 14, Molly, 12 and
Meaghan, 6
Education: Bellarmine High School, Tacoma, 1953; University of-
Washington, 1962, Bachelor of Arts in Political
Science
Employment: Bounty Administrative Officer- - King County, Washington
since 1971
Prior Employment: Administrative Assistant and Deputy King County
Executive, 2 years, Administrator, Systems Planning,
Materiel Dept. , The Boeing Company, Commercial Airplane
Division -_..12 vears,., previous assignment,. Manager,
Inventory Management and Purchasing
1. LEGISL.�TIVE & GOVERN.SNTP.L EXPERIENCE: -
Member, State Advisory .Committee, U.S. Civil Rights Commission
-since• 1971 '
Chairman, Washington State Board Against Discrimination 1969
Member,• Washington State Urban Affairs Council 1969-1971
• Member, Washington State Commission on Civ;.l Disorders 1968
Elected to the House of Representatives, 1966-1968
.r Vice-Chairman of the• tonal rGoverriment Committee •of • the• House; ;1967
1969, , Member of the Appropriations Committee 'and the Committee on
• - Education and Libraries `
' r
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4
FACT SHEET
JOSEPH L. MCGAVICX (continued) Page 2.
& GOVER.??AEaTAL-EXPERIENCE (cont'd)
Special. Member of the Legislative Council and its subcommittee
on Local Government '1967-1969
By request of the Speaker of the House, served on the Legislative r
Council Cormittee on State Institutions during its hearings, on
Rainier School, Northern State Hospital and the Director of
Institutions
Member, Washington State Council on Aging - 1965 to 1968
2. CIVIL. ACTIVITIES:
Delegate to The Governor's Conference on Decisions for Progress,
19vs
Elected to the Board of Directors, November 16, 1969, for the
• Church Council of Greater Seattle.
Member yof the Education Cor�riittee of the j:allingford' Community
•,' '1CoUndii-. Co.;-Chairman,• -P3.anning .C4mm ttee; •1970-1971 . ,
• Member of the Seattle and King i.ounty.biunicipal League, 196 ', to 19:
Member of the Committee of 240 of Forward Thrust; member of the
Legislative and Speakers Comrriti;ees of Forward. Thrust; Member
• �"~�' Pi:iorities Analysis'"Commi•ttee.' 1'+)6.9 •`i''.
•t • t Member of the Group Health Cooperative .1956' to`-present,, 'Committee
on Legislation 1966 to 1969 '
Member "of Allied -Arts..of Seattlo, .Inc:••-1966 .to' 1970
Member of. the Pacific Science Center- 1966-1969
Citizenship Chairman,' Interlake School 'P.T.A.-, 1967-1968, - 1968-19-6
• Past. and . current 2nd Vice President _(Program), Interlake School •
• • P.T.A. , 1966 to 1967 ,
t 1,
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�_. FACT SHEET
JOSEPH L. McGAVICK (continued) Page 3.
• 2. CIVIC ACTIVITIES (cont'd)
Past co-president, with Carole, of Interlake School F.T.A.
1965 to 1966 .
••-- -----F3elegate to the' State' Convention- of -the Congress of. -Parents and
Teachers, 1966
Member of the Seattle Urban League and Member of its 1.967 Board.
3. POLITICAL ACTIVITIES:
Member of the Board of Trustees and Past President of the
Young Republicans of King County, 1965-1970.
Member of the Republican Platform Task Force of the Washington
State- Central Committee, 1966 and 1968
Delegate to the Republican State Convention, 1964 and 1968
Precinct Committeeman, 32nd District, 1963 to present
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! Resume
1 ENDFRED J. LUNDBERG
! I. EDUCATION:
t Doctor of Philosophy.
Graduate School of Public and , International Affairs,
University of Pittsburgh, 1971. Major in Urban
. Affairs , with minor in Governmental Finance. Heavy
emphasis on using systems concepts for solution of
critical urban problems. ,
Master of Public Administration.
Graduate School of Public and International Affairs ,
` University of Pittsburgh , 1966 . Major: Urban Affairs
;• with emphasis on behavior of municipal governments and
of large urban complexes. Minor: computer technology
'tt with urban applications. '
1 Bachelor of Arts.
Brigham Young University, 1959, Major: Political
Science with strong emphasis upon municipal manage-
ment as a profession. Minor: Economics and. Modern
# Languages. . .
y .
II.- PROFESSIONAL EXPERIENCE
Director, Institute for Urban Information Systems , ,University
of Cincinnati, 1965 to present (February1973) .
Created and guides work of the Institute in building
urban information systems ; creates new data .flows and
i'• • ' ' prb'ves 'existing' sources to . siipply laege data bank, '
€-
' improvides 'technical assistince' to local' agencies in
research in- urban information systems.; researches
urban change factors using banked- data; searches data
base and issues variety of information reports for
users; .and serves as.:consulting- resource to wide•.variety ;
' of urban organizations. Teaches graduate courses in
' Computer Technology and Urban 'Information Systems`, - *,
Assistant Professor 'of Community Planning, University of
Cincinnati; 1965'.to. present (Feb.ruary 1973) `
Research ,Instructor, Institute of Local Government, University •
of Pittsburgh, 1964-1965. .
Structured and directed research project's contracted
, by the University with m.;
h coaunity organizations. Wrote
; . :research reports and edited reports prepared by others:
-Taught graduate courses for students in the 'Graduate
School of Public and International• Affairs 'and .special
r
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.. _ .. ,., .. +4..,: t x..n .... t.at ,.viE. �aea�T.tl,•�. K ' v.. r,.:t�nk.>.
,r f;. .S'•".rC'.S" '.�t'"r: :•,':rt.•.w. .•�.y::'r' «i.. '!'�'«..�•"s`:•'•G:S.":'' :.:`'t •j. t''.� •,,...i�•, ;„ik..{,•r,^• .Ta•ti .r.,�.+'' .: .�«. .`f,y
short courses for local government officials and others,.
Doctoral student and Assi.stant' to the Dean, Graduate School
of Public and International Affairs , University of Pittsburgh,
1961-1964 .
Performed a wide variety of administrative tasks for
the Dean, including the development of faculty records
system, drafting conference programs and seminar outlines . '
for national and international meetings and replied to
wide range of correspondence to the Dean.
• Positions held in local government administration, 1957--1961:
Assistant to the City Manager,. Fiscal Analyst, Director of
Personnel, and Administrative Intern.
Developed new civil service system, prepared budgets
with emphasis on cost-cutting techniques, carried out
management studies and reorganized various departments
and functions according to the results of the studies.
• Drafted working outline of new legislation for comple-
tion by city attorneys , and various other tasks as
assigned by City Manager.
SII, PERSONAL DATA
Aqe:• 41; height: 613" ; weight: 214 lbs; Caucasian, married;
7 children, Army veteran; good health.
Religious Affiliation: Church of Jesus Christ-of Latter-day
Saints.
Present: First Counselor, Cincinnati Stake Presidency
'" Foizner: Bishop, Cincinnati'
Seeoncl Ward r' Ci.'ncnnati stake,
'2968-1970.
' Member of Stake High Councils, 1963-1968.
• Missionary to Uruguay, 1950-1953. ,
Mi.l'itary -Service: U•.S. ,Army,:,15.3-1955. •:' "_`'
PROFESSIONAL 'ASSOCIATIONS
• Urban. and Regionai .,Information Systems Association`
Affiliate,' American Institute' 'of Planners.
. ' American Society for Public Administration.
Ohio Council on :Urban Affairs.
Housing and Research Committees, GreXter Cincinnati Chamber
of Commerce. '
1 !lN,�"Y . •I ••I•r•:l•\ +f �,�.1�•''•' , , •+I. 4.•• /''I. " •i f •��r i\\ •I {«.�..� 1.- . i
V, -PAPERS AND PUBLICATIONS: '
"Use of an Address Coding Guide in Relating Housing Information, "
November, 1971. Paper delivered at Census Users Conference,
U.S. Bureau of the Census , Arlington, Texas. For publication
by .the Bureau• in early 1972.
"A Prescriptive Design for an Information System to Monitor
Urban Change, " Ph.D. manuscript, 269 pages, September, 1971.
"A Uniform Building Permit Application System Utilizing
Computer Technology, " tenth publication, Housing Planning
Information Series, Department. of Housing and Urban Development' '
1970 (with Douglas E. Warns) .
"Plan for the Reorganization of the Cincinnati Health
Department," study report for the Cincinnati Board of
Health, 1970 , (with Charles J. Austin and Douglas E. Warns) .
"An Operational Social Service Information- System, " Proceedings
of the 7th Annual Conference, Urban and Regional Information
Systems Association, 19690 (with Douglas E. Warns) .
"A Preliminary Plan for the improvement of Public Services in
Perry Hilltop," a large-scale study report for Action-Housing,
Inc,. , Pittsburgh, Pennsylbania, 1965. 351 pages.
"An Information Systems Role for Urban Universities," Proceeding
of the 10th Annual Conference-, Urban and Regional Information
Systems Association, 1972.
a
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.. s:.:•i?'�\2 k`•6.,3�'y;�v{?wFr.�•�a:?kki''; aifpn�f.^aN,',-�'� ?r' °"''�4;.' .- YCe ;'3�Ci 'K P �•
• ,. - . MARY AMSD; N CUOCH
301.G l)Ui:3AXTO': AVrWE.. Id .W. H01-I::: 333--ii6 37
WASHING-A.-ON D.C. ?0007 Orri r: 466-8150
EXPETLITEc1;;E
Present: ASSISTANT ]ARTECTCR: National _Coordinating Council on Drub*
-pa Educatiz^; /� ':itlli'.�t(111, •U.�'. , I1C�:i .^Ci It a-Yug eauc.. gan-
Li.atisra concerned with dissemi nat i r-g correct and unbiased
�1>a i.nfor:cation on use and abuse of drugs to constituency and t
reneral public. Duties include:
Di.reotor of Member- Activities : - Plan, coordinate and admin-
3
M7 4dL:cc:'tlun t1C•C1Vltle3 of 133 national member organ-
i?,at ions .
Public P.elnticns: Represent Council al: government meetings ,
conferences and workshops. Assist in fund raising activities
on behalf of the Council. • Manage bi-weakly news7.c:tter and
comprehensive drug information servi.ca . Arrange. promote,
and plan evalLation of annual meetings and workshops .
Office Manaver: Supervise and coordinate office staff
t9 pro e3s oasis, 7 clericals) responsibilities . Extensiva
eorrcaspondence and signing of mail in Executive Director's
absence. Rcsear•ching and responding to constituent mail.
Drafting of -1personnal. manual. Coordination of information '
within the office. Monitor foundation grants, Fe%leral
grants, cost reirrburnahle contracts . Supervise receivables
• and disbursements including bill payments, employee salaries ,
withholding tax deposits, quarterly tax reports, year end
tax reports (Foran 990-•A) , }'ounc9ation Status Report (Form
4653) , and quarterly financial reports.
,Promoted from ExeciAtive Assistant to Assistant Director for.
Administration to Assistant Director.
1969 ADMINISTIUVRIVE ASSISTANT: National Council on Xoi.s6 Abat.orte`h.
Washington t D.C. , nonrrofiz orCI ��Iii:iari.�n• carc�►rned tiai th r;aa:ar
pollution. . Responsible for roi;tine office administration :
inalud:inf; extensive correspondence, rosearch, writing of
newsler-cer, book.kcap.i ng, secretari:al duties ., sr-tting up aI:d
coorldinating national ineet .ngs, workin- with press and
eoordinat:-ng activities, of iiiembar;h i p.
1.96:: SENIOR SECiIF."IV RY: Peace Corps, Washington, D.C. , r;ecra'l:�. �.ar'ul
dut - Is in repar,ati - , for aesi ffni inr:i: as Admini.strAtive Au::i;- .
tarlt in We`1t tlfrica. Decided against &oing oversf as .
:�,. mow:. ...y.•y s.. :.:::.:: ....._... :1{.. 'i'.` _
•Jw 'i
��..t . .'�. ...--: k`•`:o:rr. ..... .•tsa.,. ..:%Jw:;�s�1#x"'-"r4.._._..m::ri:�e.�;6Kt�^::n..zs......M-t;��A;iE`•r'&�:-::.uv:,9`r �:•�r�u4t,
2
1966-68 STAFF ASSISTANT: Educational AScociates, Inc. , Washington,
D.C. , nonprofit education organ zation formed to administer
the Office of Economic Opportunity ' s program' UPWARD BOUND. .
This program was a summer school for secondary school
students from poverty backgrounds held on 250 college campuses
across the United States , with follow-up efforts during the
school year in various communities . Responsibilities
included the 'scheduling and coordination of all consultants ;
writing evaluation summaries of consultant reports ; setting
, up and coordinating national meetings; and secretarial
dutie6 .
Promoted from Junior Secretary to Executive Secretary to
Staff Assistant.
1965 DESK CLERK/SKI INSTRUCTOR: Squaw Valley Lodges Olympic
• Valley, California.
1963-64 SECRETARY/CASHIER: E. F. Hutton and Company , La Jolla,
California.
1962 SECRETARY: The Coldwell Company, Los Angeles, California.
EDUCATION
'1960-62 Bradford Junior College, 'Bradford$ Massachusetts. A-A Degree.
1956-60 Emma Willard School , Troy, New York. Secondary Degree.
SPECIAL QUALIFICATIONS
Complete knowledge of office management and supervision, bookkeeping
procedures . Typing: 70wpm. Working knowledge of all Xerox machines ,
adding machines, mimeograph machines, PBX switchboard, addressograph3 and
IBM mag card selectric.
OTHER ACTIVITIES- OF INTEREST
Volunteer work in several areas of national and civic interest . . .Resurrection
City in June, 1968; New MORE in November, 1968 ; Kent State Memorials at the
New York Presbyterian Church in Spring of 1970 ; Me Carthy for President in
19GS ; and as ex-member of the Washington Junior League, have tutored first
and second graders in inner-city and have conducted tours of the National
Gallery and Smithsonian Institute for inner-city residents .
PERSONAL
Born May 211 , 1942 .
Health E-.---:%_,llent
M,-Irit&l Status: Single
PERSONAL REFERANCES AVAILABLE ON REQUEST
Resume of. . . Al Templeton
2452-39th PIace,N.W.
Washington,D. C. 20007 (202) 333-6488
PERSONAL Married. Date of Birth: June 4, 1938. Height: 6' 1%1'.
Weight: 176 lbs. Excellent health. -
EDUCATION Eastern State University, Richmond, Kentucky--M.A.,1963. 4
Major: Secondary School Administration;Minor: Social Studies.
Transylvania College, Lexington, Kentucky--B.A., 1961.
Major: Sociology -Economics;Minor: History-Political Science.
SUMMARY OF Over 12 years of continuing and progressive intensive education,in-service
PROFESSIONAL training,and experience in the direction,administration,and management
EXPERIENCE of education,social service,and social-action community programs. In-
cludes technical service,selection of staffs,fiscal control,preparation and
implementation of procedures, community organization,program develop-
ment and evaluation,program writing and the interpretation and coordina-
tion of federal and state programs on the local level. Strong contact with
government,voluntary, public, private and religious leaders,as well as with
low-income participants. U. S. Civil Service Rating: GS-14.
PROFESSIONAL Self employed as Consultant. Work extensively as Consultant to Depart—
EXPERIENCE
EXPERIENCE went of Labor's Welfare Reform Planning Staff. Specific focus on child
care,its program aspects and legislative development. Represented De-
3-71 to oc-r � � partment on six months' Interagency Day Care Task Force planning and
.Date— developing Federal system for use by local communities and states. DOL's
liaison with DHEW's Office of Child Development,developing planning
guides for day care;reviewed and conducted staff work on feasibility and
programming of the Federal system,including contact with Federal re-
gional personnel and program operators.
Work with WRPS� on employability development planning. Draft issues
and position papers for policy resolution: subjects include collection of
r employability data and development of data with view to program en-
rollees and available employment,training and supportive services infor-
mation;review compatibility of plan with other manpower programs.
Participate in overall staff welfare reform planning including review of
pertinent legislative provisions.
Employed by local United Way agency in developing a package of social
services for Federal funding. Work includes forming the basic planning
approach with executive staff, meeting with local public and private
agencies to determine their needs and capabilities,devising plan for service
'deliverers, writing work plans, structuring budget work,and preparing
�;` ' '`'' ;��; • :'''contract for Federal funding. Serve on continuum to provide written re-
• ports regarding legislative and funding information,and to review and
recommend approaches to delivery of social services.
L; Do short-term work with a number of firms in•providing social policy and
• •'' position papers,legislative information,prospecti and program design.
. Al Templeton Page 2
Day Care & Child Development Council of America,Inc.
Washington, D. C.
(Private, non-profit organization promoting development of locally controlled,
publicly supported, universally available child care systems through public educa-
tion,social action and assistance to local communities.)
1-69 As Director of the Field Services Division (and one of 4 Associate Directors
to of the Council), exercised complete administrative direction of the Division
3-71 (staff of 10), including field representatives, materials development support,
and administrative support staff, Guided field representatives in planning
approaches to working in communities, utilized staff meetings and individual
counseling to insure proper conduct of Council programs;developed a mem-
bership system for organizing local people into dues paying gfoups. Con-
ducted a complete evaluation, overhaul and conversion of administrative
procedures to a more efficient system. Designed a systematized report for
field representatives which expressly categorized the results of their field
activities. Disseminated appropriate information to other operating divi-
sions for Council use. In addition,supervised the staff compilation and
preparation of field materials,and the coordination of these materials with
the Information Services Division. Directed government contract Community
Coordinated Child Care (4C) program during wrap-up phase, including super-
vision of field officers and support staff(10 people),closing out contract
obligations and converting field division to other agency activities.
Primary responsibilities included participation on executive level in the iormu•
lation of Council policy;planning,programming,implementing and evaluat-
ing Council activities,such as sponsoring meetings and conferences,and joint
endeavors with other organizations in promoting programs for children;con-
tract preparation and negotiation with pertinent agencies;and liaison with
govemment,business and civic leaders in achieving the goals of the Council.
• 6.68 Self-employed as Consultant in'manpower and*community action related
to programs,including preparation and submission of program proposals to
. 1.69 appropriate federal agencies. Additionally,designed programs and budget
adjustments,redesigned administrative procedures(including office tasks
• knd'job descriptions),and wrote contracts. Involved advi§ing staffs and staff
• directors on specific actions; preparation and discussion of written reports,
- and interpreting program needs of local'level agencies to,field officer in
Washington. Formulated administrative system for neighborhood services
` center,served as member of special task force rendering technical assistance
to'Indian' community action programs;and as liaison consultant in formula-
tion and implementation of coordination procedures between a community
action and a model cities program, '
12.67 Economic Opportunity Atlanta, Inc., Atlanta, Georgia
to ;Coordinator,New Careers-Atlanta Concentrated Employment Program.
• 5-+68
Directed staff of 9 professionals and 3 clericals in the overall administra-
tion and implementation of New Careers program,designed to develop
work-training slots for low income participants. Responsibilities included
staff selection and training,interpretation and presentation of program to
3�hr ..a-:.k .,. ,. _ -Z .. k.,• },.. ..L . r'(•.:.. - ` _..:.4[ .. .._. ., ... s . .w .nt._.} ,r _ ..., _.... r 74 ..4 _+. -n_..:` .w`,`l:jz
• ��' •Al Templeton Page 3.,
various federal, state and local social agencies, preparation and submission
of reports, development and maintenance of enrollee information files,
and program adherence to federal guidelines as well as compliance with
host administrative regulations and procedures.
1-67 DeKalb County Economic Opportunity Authority,Inc.,Decatur,Georgia
to Executive Director. —_
11-6? '
Directed entire community action program(CAP),responsible for guidance
of staff of 11 professionals and 3 clericals. Involved selection of staff, field
visits,staff conferences, fiscal control responsibility,preparation and sub-
mission of progress and financial reports,and coordination and interpreta-
tion of programs with the delegate agencies and the community. Planned,
implemented and evaluated community development proposals.
7.65 Council of the Southern Mountains, Inc., Berea,Kentucky
to Community Action Technician.
1.67 Organized low-income residents into community action groups,advising on
appropriate guidelines and actions. Aided in the development and evaluation
of programs and their coordination for local use. Assisted in procurement of
federal,state and local aid. Wrote proposals,worked with local community
action program staffs,prepared training materials for workshops involving
the poor,advised Boards of Directors, and aided in staff selection.
8{1 g-53 Boards of Education, Princeton and Versailles, Kentucky ,
to and -to Teacher/Chairman of Social Studies Department.
6-62 6.65 Classroom teacher,junior and senior high schools. Named Chairman of Social
Studies Department with responsibility for developing pilot teaching project.
Included selection of classroom materials,preparation of student reading lists,
compiling materials and texts for staff use,and conducting planning sessions.
Summers•49S8, St.John's Camps . .
and 1960 to 1964 Delafield,Wisconsin '
Began as Counselor,responsible for care and welfare of six campers, Taught
five activity classes and maintained contact.with,campers':parents. Advanced -
• • to Unit Head (1 of 6) with supervision of li counselors and'overall responsi-
bility for 36 campers and.their welfare and relationship with counselors;.,
maintained camper records. Organized activities, served on camp-wide com-
mittee for policy decisions.' Last 3 summers,served as Assistant to Director
(1 of 2) with overall program planning responsibility for.200 boys., Involved
implementation and direction of camp activities, policies and procedures.
-Prepared guidelines,orientation materials and trained counselors, •Developed
-camp schedules and policy memoranda to ensure camp's smooth function.
MEMBERSHIPS National Association for Community Development;Day Care and Child,De-
velopment Council of America, Environmental Defense Fund;Save the
Children Federation;Council of the Southern Mountains.
.
REFERENCES , Available-on request.
a
JAMES P.-KENNY. RJcmmO,,,D THE BOARD OF SUPERVISORS
OZT DISTRICT ALFRED M. DIAS
ALFRED M. DIAS, SAN PABLO CHAIRMAN
IND DISTRICT CONTRA COSTA COUNTY JAMES E. MORIARTY
JAMES E. MORIARTY. LAFAYETTE VICE CHAIRMAN
3RD DISTRICT ADMINISTRATION BUILDING. ROOM 103 W.T. PAASCH,c:UNTY CLERK
WARREN N. BOGGESS, CONCORD AND EX OFFICIO CLERK OF THE BOARD
4TH DISTRICT P. D. Box oil MRS. GERALDINE RUSSELL
EDMUND A. LINSCHMID. PITTSBURO MARTINEZ, CALIFORNIA 94553 CHIEF CLERK
STH DISTRICT PHONE 2.28-3000
EXTENSION 2371
March 13, 1973
Mr. Al Templeton, Director
Allied -services Project
National Association of Counties - Research Foundation
1001 Connecticut Avenue, N. W.
Washington , D. C. 20036
Dear Mr. Templeton:
As Chairman of the Board of Supervisors of Contra Costa
County, it is a pleasure to accept the invitation of the NACORF
Allied Services Project, for Contra Costa County to participate
as one Of six pilot counties in the project.
Attached is the Board Order, dated February 20, 1973,
indicating a desire to participate in said study, and
Resolution Number 73/117, affirming our dedication to and support
of an effort to improve systems for delivery of human services to
those in need.
It is my under* standin& that during your pre-site visit you
met with the Human Resources Committee of the Board of Supervisors,
composed of Supervisors J. E. Moriarty and J. P. Kenny on this
matter. I am certain that they will'. be interested in meeting with
the NACO team which will visit Contra Costa' County from
March 20 to March 23, 1973.
You may be assured of the full cooperation of county officials'
and staff in this project and if at any time you should feel it
necessary to contact the Board of Supervisors directly, please
do not hesitate to contact me.
Very urs
ED M. C Arman
Boar a Very urs
Supervisors
M
Contra Costa County
AMD/aa
encls .
tV� xw
nt
"043VIN
z",
`fJ TY PERVISORS
S C i A T 1 O N
4= HEADQUARTERS—SUITE 201. IIT" 6 L BLDG., SACRAMENTO. CA 95814—PHONE (916) 441.4011
t SOUTHERN CALIFORNIA OFFICE — HILTON OFFICE CENTER, ROOM 722, 900 WILSHIRE HLVD,•
LOS ANGELES, CA 90017 . PHONE (2s3) 625.7521
OF CA LI F 0FR -J IA
EXECUTIVE COMMITTEE March 1, 1973 MECEIVED
Presidents 1973
DONALD M.HILLMAN W. T. P A A S C H
Tulare County
CLERK O RRpA Cfi 6U CRV180R8
First Vice.MAdent: Al Templeton, Director
ARCH G.PAAHAN Mr. p , gy
INIono County Allied Services Project
Second Vice President: National Association of Counties
GERALD F.DRY Research Foundation
San Mateo County 1001 Connecticut Avenue N.W.
DAVID L.9AKFR Washington, D.C. 20036
Orange County
JOSEPH P.SORT Dear Mr. Templeton:
Alameda County
ARTHURH.EDMONDS We are delighted, of course, to learn that
Yolo County one of our fine, well-managed Bay Area
EUGENE T.GUALCO counties • Contra Costa County — has been
Sacramento County
selected as one of the National Association
A.A.McCANOLESS of Counties Research Foundation's Allied
Riverside County
Services Project- pilot sites,
SIG SANCHEZ
Santa Clara County We commend NACO and your office on the
PETE SCHASARUM selection of Contra Costa County because
Los Angeles County
California county government has long come
NANCY E.SMITH to look to the supervisors there for leader-
Son Bernardino County
ship and pioneering efforts.
RALPH P,THIEL
Tuolumne County
We plan to note this project in a forthcoming
RICHARD VANDER WALL
Stanislaus County issue of CSAC News.
GEORGE If we can assist you in any way in your visit
SiskiyouCounty County to California in late March, please do not
County Administrative hesitate to call upon us.
Officer
ROBE RT A.COVINGTON Sincerely,
San Bernardino County y,
County Counsel
WILLIAM M,SIEGEL •��IIt%% :/ 7 ►�----
Santa Clara County
Jack M. Mere'lman
Executive Director and General Counsel
Executive Director& JMM/ms
General CuunChairman, Board Of Supervisors
JACK M•ME REE LMAN cc� iaGly L'�
J. P. McBrien, A minxstrative ficer .
Contra Costa County
JORNLIN
CTOR
SOCIAL EEMlYlCE DEPARTMENT
CONTRA COSTA COUNTY
MEMORANDUM
TOs Clerk of the Board
FROK Judy Ann Miller DATES February 27, 1973
SUBJECT:
Allied Services Prof i4t Director
,
DESIGN OF PRE-TEST OF THE ALLIED SERVICES ACT
At Mr. Jornlin's request I am forwarding to you six copies of an infor-
mation memo regarding the progress of the AlIled Services Protect In
this county. Mr. Jornitn felt that the Board members might be interested
In the attached information. I would appreciate your cooperation In In-
suring that each of the'Board members receives a copy.
JAMIws
Attachment
Eno vift:— 1
d. y» -
11111116 Eno
f=EBe29 1979
CLERK eo Ra oA SUPERVISORS
6y, PeA COSTA Co.
Deputy
f
5
i`, .. :.rti d Fi• i T e � 'Y"x f i � 7 i 4 a f qi�w s� ,} ..'
�.',�;t x !;ti ��W � k_._. .w+�" "� . .x : t 4 :. �_�.•2d o .,.Y.��+ .t tut• t tr [Y a,.ti t4 ,ne. �En' ka D�33�`C�' n "r" ,"c�,.'���dn
R. E.JORNLIN
SOCIAL SERVICE DEPARTMENT
CONTRA COSTA COUNTY
MEMORANDUM
TO: Those listed below:
FROK Judy Ann Miller, DATE: February 26, 1973
Allied Services Project Director
SUBJECTS k, )
DESIGN OF PRE-TEST OF THE ALLIED SERVICES ACT
To Insure that everyone Is kept abreast of what Is happbnIng In the project,
I am forwarding this memo to you containing news about the project, and I
welcome your comments, suggestions, etc.
News Items:
1 . On February 13th we were Informed by Al Templeton, Director,
Allied Services Project, of the National Association of Counties,
that Contra Costa County has been selected as one of six pilot
counties In which NACO staff will be doing research In regards
to our attempts at service integration. Mr. Templeton will be
visiting this county February 22nd and 23rd to work with the
project staff to prepare them for the on-site visit which will
occur In the latter part of March. IYIII make a report on his
visit within the week's time.
2. We have received word from the Department of Health, Education
and Welfare Informing us that our project has been extended
through October 31 , 1973. This extension Is contingent, however,
upon the submission of an evaluation plan.
3. The Social Program Planner 11 position In the project has been
filled. Mr. George Feller has been selected and some of you
can expect to be hearing from Mr. Feller as he orients himself
to the project.
4. The Social Program Planning Unit of the Human Resources Agency
has taken the lead In developing the work plan for the project.
They are doing this in conjunction with Model Cities staff and
Mr. Feller. It Is anticipated that they will complete this plan
by February 21st, at which time the plan then becomes the respon-
sibility of Mr. Feller. With the completion of this plan, we
will be' able to work towar=ds developing our evaluation system
as mentioned Jn News Item 1 .
5. 1 have been Informed that the League of Cities has selected
Richmond for a study In terms of that city's preparedness for
Allied Services. It appears that NACO will concentrate pri-
marily on the county system, and the League of Cities will
emphasize their study In Richmond, These two teams will be
comparing ,notes with one anot-her to get a total overall pic-
ture of the Allied Services project In this area.
10
GEN
6. With the work pian nearing completion, the first meeting of the
Allied Services Board should occur in the near future. The initial
Information letter to respective agency heads is ready for Signa-
ture and should be going out within the week.
7. We have run into some difficulty in selecting a Programmer Analyst.
I am in contact with Mr. Hatchett, of Model Cities, and we are
working conjointly on the problem and hope for an early resolution.
8. The position of Community Participation Organizer is at the oral
board stage, and we anticipate having this staff member on board
by early March.
I have provided you with the above information in hopes- of keeping you
abreast regards the project. If I have inadvertently omitted an item which
you are aware of, please feel free to contact me, and I will try to get it
Into the next information memo.
JAMjws
Distribution:
R. E. Jornlin, Director, Human Resources Agency
AlCroutch, Assistant Director
Henry Dishroom, Assistant City Manager, Richmond
Art Hatchett, Acting Model Cities Director, Richmond
Pat Jones, Model Cities, Richmond
John Elcheiberger, Model Cities, Richmond
Warrington Stokes, Chief, Social Program Planning
' `e��"'s;� � a- � ,�� ��� ,r r�t�:yd�ryk4.��h�tl"ax'��ar^'•,, ,� �`�' v�a��,,,. � L K h� �
r
�i
0
In the Board of Supervisors
of
Contra Costa County, State of California
February 26 1973
In the Matter of
Official Invitation of Allied
Services Project to participate
as one of six pilot counties in
the NACORF Allied Services Project
The Board having received a letter dated February 16, 1973
from Mr. Al Templeton, Director, Allied Services Project, National
Association of Counties Research Foundation, 1001 Connecticut Avenue,
N.W. , Washington, D.C. 20036, officially inviting Contra Costa County
to participate as one of six pilot counties in the NACORF Allied
Services Project and indicating that a team will be visiting Contra
Costa County March 20-23, 1973;
On motion of Supervisor E. A. Linscheid, seconded by Super-
visor J. E. Moriarty, IT IS BY THE BOARD ORDERED that the aforesaid
letter is REFERRED to the Human Resources Director.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. P. Kenny, J. E. Moriarty,
W. N. Boggess, E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: None.
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
c c: Human Resources Director Witness my hand and the Seal of the Board of
Attn: Judy Miller Supervisors
County Administrator affixed this 26th d of February , 19 73
W L PAASCH, Clerk
Deputy Clerk
an r er
H 24 7/72-ISM
•
NATIONAL ASSOCIATION OF �ioumn s Research Foundation
1001 Conneotiont Ave.. N.W. Washington. D.C. 20036
Ares Cods 202-NAtional "701
16 February 1973 RECEIVED
I rrn oi973
Mr. Alfred M. Dias W. T. PAA S C H
Chairman, Bd. of Supervisors LCLERK BOA OF SUPERVISORS
ONT A C CO.County Administration Buildings
Martinez, California 94553y
Dear Mr. Dias:
This letter is to officially invite Contra Costa County's participation
as one of six pilots in the NACORF Allied Services Project.
On behalf of NACo may I say how extremely pleased we are to be working
with you and your staff. The Department of Health, Education and Welfare
played a major role in pilot selection and echoes our enthusiasm.
As you know from my previous conversations with Judy Miller, the team
would like to visit Contra Costa March 20 - 24 1973. I will make an
advance visit to meet you and to lay the ground work for the teams
visit.
The purpose of this research effort is to retrieve services integration
information and to provide limited technical assistance. While there
are no pilot funds available to your county this experience will no
doubt be of long range benefit. The enclosed fact sheet elaborates on
the project; but feel free to contact me if you have any questions.
Looking forward to your reply.
Friendly like,
Al Temple on, Dir -tor
Allied Services Project
AT:js
cc: Ms. Judy Miller
Enclosure
&.a/. ,
NATIONAL ASSOCIATION OF CioummB Rewash Foundation
Allied Services Project loos Connecticut A,,- N.W. a Washington. D.C. 20086
Telephone: (202) 628-5496 Area Code 202-NAtional "701
(202) 628-5617 After 5 March, 1973: (202) 785=9577
FACT--SHEET
NACORF's ALLIED SERVICES PROJECT
Funding; Research grant from U.S. Department of Health,
Education and Welfare-( DHEW) $119,355.
Grant Period: October 1, 1972 - September 3Q,
Purpose: Retrieve services integration information
from six (6) pilot counties,
initiate limited technical assistance role with
six.(6) pilots,
distribute information to NACo member
counties on services integration,
interpret, allied services developments to
counties and solicit comments and-reactions:
In funding this grant DHEW, recognizing the strong role of counties in the
delivery of human services, seeks to document the level of involvement
counties have .raached..in integrating their human services programs. , NACORF
is working; on- a limited time basis, with six (6) pilot .counties io -collect
data regarding the-counties' Involvement and the status 'of that Involvement.
We are looking for information which will be helpful locally_ and, nationally
in testing various approaches to..integrated human services deliveiy'at the
local level, and thus, pre-testing the proposed Allied' Services Act.' NACORF
will also assist the pilots, where feasible, in providing technical assistance
approaches that may be useful.
Our modus operandi is to use a team of five (5) people, for a three (3) day
on-site visit. Teams are composed of two (2) NACORF staff members, an urban
information systems specialist, a county management specialist, and a county
human resources specialist. These last two are county based employees.
Under this grant, NACORF will disseminate information, through County News
and through NACO's annual convention and periodic workshops, concerning the
allied services program and legislative developments-in-connection with the
Allied Services _Act. , Our .intent .is to increase the level of available
information to counties about.services ,integration.
(OVER)
�f'
IN THE BOARD OF SUPERVISORS
OF
CONTRA COSTA COUNTY, STATE OF CALIFORNIA
In the Matter of Report )
of the Human Resources )
Director with Respect to ) February 20, 1973
the Allied Services )
Project. )
Mr. R. E. Jornlin, Human Resources Director, having
advised the Board in a report dated February 17, 1973 that Contra
Costa County has been chosen as one of only six pilot counties in
the United States to participate in the National Association of
Counties Research Foundation (NACORF) Allied Services Project, a
study of integration of human services delivery; and
Mr. Jornlin having stated that Mr. Al Templeton, Director
of the Allied Services Project, will be in Contra Costa County on
February 22 and 23, 1973 to make advance preparation for the on-
site meeting scheduled for March 20-23, 1973 of a team composed of
two NACORF staff members, an urban information systems specialist,
a representative of the Office of the County Administrator, and a
representative from the County Human Resources Agency; and
Mr. Jornlin having further stated that Mr. Templeton had
requested a meeting with the County Administrator and two members
of the Board to assure that Contra Costa County is committed to
participation in a project to design a pre-test of the Allied
Services Act; and
On the recommendation of Mr. Jornlin, and on motion of
Supervisor E. A. Linscheid, seconded by Supervisor W. N. Boggess,
IT IS BY THE BOARD ORDERED that the Human Resources Committee
members (Supervisors J. P. Kenny and J. E. Moriarty) are DESIGNATED
as .the two Board members to attend aforesaid meeting; and Resolution
No. 73/117, reaffirming Contra Costa County's participation in the
Allied Services Project and stating the desire of this Board of
Supervisors for continued funding of said project is APPROVED; and
IT IS BY THE BOARD FURTHER ORDERED that copies of said
resolution be forwarded to appropriate federal officials.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. P. Kenny, J. E. Moriarty,
W. N. Boggess, E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: None.
I hereby certify that the foregoing is a true and correct
copy of an order entered on the minutes of said Board of Supervisors
on the date aforesaid.
cc: Mr. Templeton Witness my hand and the Seal
Human Resources Director of the Board of Supervisors affixed
Director, Allied Services
Project this 20th day of February, 1973•
Board Committee W T. PAASCH, CLERK
County Auditor-Controller
County Administrator
By
San ra xmler
Deputy Clerk
NATIONAL ASSOCIATION OF Cou TIES Foundation
Allied Services Project 1001 Connaotioat Ave, NW. . waahin4tan. D.C. 20088
Telephone: (202) 628-5496 Asea Code 202-NAtional 874701
(202) 628-5617 After 5 March, 1973: (202) 785=9577
FACT SHEET _
NACORF's ALLIED SERVICES PROJECT
Funding: Research grant from U.S. Department of Health,
Education and Welfare (DHEW),-$119,355.
Grant Period: October 1, 1972 - September 30,, 1973
Purpose:. Retrieve services integration information
from six (6) pilot counties,
initiate limited technical assistance role with
six (6) pilots,
distribute information to NACo member
counties on services integration,
interpret allied services developments to.
counties and solicit comments and reactions.
In funding this grant DHEW, recognizing the strong role of counties in the
delivery of human services, seeks to document the level of involvement
counties have roached.in integrating their human services programs. . NACORF
is working, on a limited time basis, with six (6) pilot counties to collect
data regarding the counties' involvement and the status of that involvement.
We are looking for information which will be helpful locally and nationally
in testing various approaches to integrated human services delivery at the
local level, and thus, pre-testing the proposed Allied' Services Act. NACORF
will also assist the pilots, where feasible, in providing technical assistance
approaches that may be useful.
Our modus operandi is to use a team of five (5) people, for a three (3) day
on-site visit. Teams are composed of two (2) NACORF staff members, an urban
information systems specialist, a county management specialist, and a county
human resources specialist. These last two are county based employees.
Under this grant, NACORF will disseminate information, through County News
and through NACO's annual convention and periodic workshops, concerning the
allied services program and legislative developments--in connection with the
Allied Services Act. Our intent is to increase the level of available
information to .counties about services integration.
(OVER)
DEFINITION,OF SERVICES INTEGRATION The linking together" of
administrative '(management type)- services (i.e.' joint planning,
co-location of staff, joint evaluation, purchase of service)
and/or direct provision of services (i.e. outreach, in-take,
diagnosis, case conference) so as to enable a number of service
providers to treat an individual's or family's need in a more
coordinated and comprehensive"manner' than any one of the
providers could while acting alone with the recipient(s).*
TEAM PARTICIPANTS
County`Management Specialists + Coufiij'Human Resources Specialists
Joseph McGavick Lois Blume
County Administrative Officer" Dean of Continuing` Education
King County Adelphi, University
Seattle, Washington 48104 Garden City, New York' 11530
Nick Meiszer Harvey Lincoln, Executive Director
County Manager 'Manpower' Area Planning Council
Forsyth County Dade County
Winston Salem, N.C. 27101 395 N.W. 1st Street
Miami, Florida 33136
Don Weber
Senior Executive Assistant Frank Panarisi, Administrator
Milwaukee County' Human Re`so'urces Agency
901 North 9th Street County of °San Diego
Milwaukee, Wisconsin 53233 271 County Administration Center
1600 Pacific Highway
Staff San Diego,`YCalifornia-92I01
Al Templeton Urban Informatioi 'Svstems 'Specialist
Project 'Director
Dr... Fred"Lundberg;` Director''
Mary Gooch _ 'Institute for Urban Information Systems
Research Associate University of Cincinnati
Cincinnati', Ohio 45,221
Judy Shafer
Secretary
*We are building on the definition set down 'in' Integration of Human
Services in HEW: An Evaluation-of-Services Integration Proiects,
a joint effort by Marshall Kaplan, Gans, and Kahn and The Research
Group, Inc., August 1972.
Il
l
IN THE BOARD OF SUPERVISORS
OF
CONTRA COSTA COUNTY, STATE OF CALIFORNIA
In the Matter of Report )
of the Human Resources )
Director with Respect to } February 20, 1973
the Allied Services
Project.
Mr. R. E. Jornlin, Human Resources Director, having
advised the Board in a report dated February 17, 1973 that Contra
Costa County has been chosen as one of only six pilot counties in
the United States to participate in the National Association of
Counties Research Foundation (NACORF) Allied Services Project, a
study of integration of human services delivery; and
Mr. Jornlin having stated that Mr. Al Templeton, Director
of the Allied Services Project, will be in Contra Costa County on
February 22 and 23, 1973 to make advance preparation for the on-
site meeting scheduled for March 20-23, 1973 of a team composed of
two NACORF staff members, an urban information systems specialist,
a representative of the Office of the County Administrator, and a
representative from the County Human Resources Agency; and
Mr. Jornlin having further stated that Mr. Templeton had
requested a meeting with the County Administrator and two members
of the Board to assure that Contra Costa County is committed to
participation in a project to design a pre-test of the Allied
Services Act; and
On the recommendation of Mr. Jornlin, and on motion of
Supervisor E. A. Linscheid, seconded by Supervisor W. N. Boggess,
IT IS BY THE BOARD ORDERED that the Human Resources Committee
members (Supervisors J. P. Kenny and J. E. Moriarty) are DESIGNATED
as the two Board members to attend aforesaid meeting; and Resolution
No. 731117, reaffirming Contra Costa County's participation in the
Allied Services Project and stating the desire of this Board of
Supervisors for continued funding of said project is APPROVED; and
IT IS BY THE BOARD FURTHER ORDERED that copies of said
resolution be forwarded to appropriate federal officials.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. P. Kenny-, J. E. Moriarty,
W. N. Boggess, E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: None.
I hereby certify that the foregoing is a true and correct
copy of an order entered on the minutes of said Board of Supervisors
on the date aforesaid.
cc: Mr. Templeton Witness my hand and the Seal
Human Resources Director of the Board of Supervisors affixed
Director, Allied Services this 20th day of February, 1973.
Project
Board Committee . T. PAASCH, CLERK
County Auditor-Controller
County Administrator
By
San ra zmler
Deputy Clerk
n
IN THE BOARD OF SUPERVISORS
OF
CONTRA COSTA COUNTY, STATE OF CALIFORNIA
In the Mutter of Supporting
Participation in the Allied ) RESOLUTION NUMBER 73/117
Services Act Project.
WHEREAS Contra Costa County has previously received a
grant in the amount of $111 ,205 from the Department of Health,
Education and Welfare for the purpose of designing a pre-test
of the Allied Services Act of-1972; and
WHEREAS staff for the design project has been hired
and work on the project is underway; and
WHEREAS Contra Costa County has subsequently been chosen
by the National Association of Counties Research Foundation as one
of only six counties in the United States to participate in a
special allied services research:project; and
WHEREAS participation in the Allied Services pre-test
project will be beneficial in terms of development of more effective
ways to provide the full range of human services to county residents;
NOW, THEREFOREO BE IT BY THE HOARD OF SUPERVISORS OF
CONTRA COSTA COUNTY RESOLVED that :continued.participation in the
Allied Services pre-test design project is fully supported; and
BE IT FURTHER RESOLVED that copies of this resolution be
forwarded to the appropriate Federal officials as an indication of`
Contra Costa Countyls dedication to and support of efforts to
integrate and improve systems for delivering human services to
those in need.
PASSED and ADOPTED this 20thdayof February, 1973, by
the following vote of the Board:
AYES: Supervisors Z. P. Kenny, T. E. Moriarty,
W. N. Boggess, R. A. Linscheid, A,.-M.' Dian.,
NOES: None.
ABSENT: None.
cc: Mr.
Templeton, Director, NACORF UERTIEUD COPY
Department of Health Education f certify that thus is-a•fulI,
p , , true & correct cagy of
and Welfare the origlnat document which'is'an fHe in my office
Washington, D.C. and that it ryas Passed & adopted by the Board n,,San Francisco, California Supervisors of Centra Costs. County, California, or.
Human Resources Director s date;shouAn. ATTEST: W. T. PA.ASCH, county
Director, Allied Services clerk 6X_officio clerkr said Board of Supervisors,
Project by d uty, rk.
County Administrator
RESOLUTION NUMBER 73/117
I�
R. E.JORNLIN 1913
RECEI�TE'� "�? D
OIR&CTOR SOCIAL. SERVICE DEPARTMENT
' ^^
CONTRA COSTA COUNTY W. T. PAA 8 C H
CLERK GOARO OF SUPERVISORS
RA
MEMONDUM TRA c STA CO.
ey uepuey
TO: Board of pervisors
FROM; R. E rJ xilin, Director, Human Resources Agency DAZE: February 17, 1973
SUBJECT.- ALLI1y
SERVICES - PROGRESS & PROBLEMS
I am pleased to announce that on February 13, 1973, we were informed by
Mr. Al Templeton, Allied Services Project Director for the National Asso-
ciation of Counties (NACO), that Contra Costa County has been chosen as one
of six pilot counties in which a study of the integration of human services
delivery will be conducted. We can anticipate receiving the confirming
document shortly.
The choice of this county as a pilot county by NACO was based on the fact
that this county already has a grant from Health, Education and Welfare to
design a pre-test of the Allied Services Act, and in response to a ques-
tionnaire sent by NACO:)(referred by Board 12-.12=72, approved for submission
by Board 1-16-73), we exhibited a breadth of services conducive to the study.
As a result of our selection, Mr. Templeton will be here on February 22 and
23 for a pre-site visit to prepare for the on-site visit scheduled for
March 20-23, 1973. He has requested to meet with the County Administrator,
and if possible, two Board members, to be assured of this county's commit-
ment to being a pilot county of NACO and of our county's commitment to our
design of a pre-test of the Allied Services Act. I would suggest the Board
recommend the two Board members who comprise the Human Resources Committee
and ask that Committee to meet with Mr. Templeton.
Additionally, we have received word that the League of Cities has selected
the City of Richmond for a study in relation to Allied Services. As the
Board is aware, we will begin our operational phase of Allied Services in
Richmond, We can consider the choice of our county and one of our cities
for study projects as a great honor. We can anticipate that the progress
of the Allied Services Project in this county will be brought to national
attention.
On February 15 I met with federal officials regarding the Allied Services
Project. Throughout the entire discussion they expressed serious concern
regarding the problems centering around the resistance of some in County
Medical Services accepting the consolidation of the Human Resources Agency
and its impact on the Allied Services Project. We were given to believe
that if the county does not. satisfactorily resolve this problem there is
question as to whether or not this county will receive continued funding
under the Allied Services Project.
GEN. 9
i
2 -
The HEW officials stated there was $20,000,000 marked for the Allied Services
Project to cover implementation next year, and that unless we exhibit through
strong supportive action our continued commitment, this county stands the risk
of losing not only funding to implement Allied Services but if the Act passes,
they have lost the opportunity to be one of the first governmental units to
have an organizational set-up conducive to continued funding under Allied
Services. Not only does the county government stand to lose funding and a
reduced ability to render services, but those agencies such as 0E0 and Model
Cities, which are presently in a reduced funding situation, are looking to
this project to continue to meet the needs of the people who receive services.
This is especially true in the Richmond area where the Allied Services Project
holds great hope for the people.
It was brought to my attention at the February 15 meeting that a member of
Congress has been contacted in an attempt to attribute the problems that have
arisen in the Human Resgurces Agency to the HEW grant we received for the
Allied Services Project.
I think this is a matter of great concern. I thought it needed to come to the
attention of this Board that attempts of this nature are not only jeopardizing
continued funding of the present project, but also jeopardize continued funding
for subsequent years. If these attempts are successful, it could possibly mean
that the current progressive services offered in this county through various
agencies will be reduced and the persons standing most to lose are the
recipients of these services.
I would recommend that the Board show continued support of the Allied Services
Project by reaffirming its authorization for participation in the Project as
an indication that it is desirous of continued funding in this area. I would
suggest that the Board adopt a strong supportive resolution to be forwarded to
the appropriate federal officials.
REJ:lr
. r
In the Board of Supervisors
of
Contra Costa County, State of California
February 13 19 73
In the Matter of
Communication from National
Association of Counties
on its Allied Services Project.
This Board having received a letter dated January 30, 1973
signed by Mary Amsden Gooch, Research Associate, National Association
of Counties, Research Foundation, Washington, D.C. transmitting
recent issues of County News which include articles on the Association
Allied Services Project wiT respect to the integration of human
services delivery;
On motion of Supervisor E. A. Linscheid, seconded by Super-
visor J. P. Kenny, IT IS BY THE BOARD ORDERED that said letter and
its enclosures are referred to the Human Resources Director, Atten-
tion Allied Services Project Director.
The foregoing order was passed by the following vote:
AYES: Supervisors J. P. Kenny, J. E. Moriarty,
W. N. Boggess , E. A. Linscheid, A. M. Dias.
NOES: None.
ABSENT: None.
1 hereby certify that the foregoing is o true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
Witness my hand and the Seal of the Board of
cc: Human Reso rtes pervisors
Director- �-� `''; �`� affixed this 13th day of February , 1973
County Administrator ��c{?x 1; W. T. PAASCH, Clerk
By Deputy Clerk
bo-rothf A. Harkness
H24 7/72-ISM
•
0
NATIONAL ASSOCIATION OF COUNTIES Research Foundation
1001 Conneadaut Ave.. N.W. •Waehin8ton. D.C. 20036
Area Cod• 208-NAtional 8-4701
30 January, 1973
FRE EDED
Mr. Alfred M. Dias � "1913
Chairman, Bd. of Supervisors PAA8CH
County Administration Building Aow s A eavuoAsMartinez, California 94553 wowr
Dear Mr. Dias:
Enclosed please find recent issues of County News, which includes an
article on NACo's Allied Services Project.
Thank you for your completed ASA Pilot Questionnaire. I have forwarded
it to the U.S. Department of Health, Education, and Welfare for their
review as a possible pilot site for our Project. We will be meeting
with them the first part of February for the final site selection process,
and will be back in touch with you then.
In the meantime, if I can be of any assistance to you, please do not
hesitate to call.
i
ely,en Gooch
c Associate
MAG:js
cc: Mrs. Judy Miller
Project Director—
Enclosure
L
i'
EI
In the Board of Supervisors
of
Contra Costa County, State of California
December 12 , 19 72
In the Matter of
Letter from the National
Association of Counties with
respect to a Pilot Project on
Integration of Human Services
Delivery.
This Board on December 6, 1972 having received a
letter and questionnaire from Mr. Al Templeton, Director of
the Allied Services Project, National Association of Counties,
1001 Connecticut Avenue, N. W., Washington, D. C . 20036; with
respect to a grant received by said organization from the
Department of Health, Education and Welfare to conduct a one-
year pilot project in six counties on the integration of human
services delivery; and
Mr. Templeton having requested that the questionnaire
be completed and returned as soon as convenient if the County
would like to be considered for participation in the aforesaid
program; and
On motion of Supervisor W. N. Boggess, seconded by
Supervisor A. M. Dias, IT IS BY THE BOARD ORDERED that this
matter is REFERRED to the County Welfare Director.
The foregoing order was passed by the following vote
of the Board:
AYES: Supervisors J. P. Kenny, A. M. Dias,
J. E. Moriarty, W. N. Boggess,
E. A. Linsche id.
NOES: None.
ABSENT: None.
1 hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
cc; County Welfare Director Witness my hand and the Seal of the Board of
County Administrator Supervisors
affixed this 12th day of December , 19 L2
W. T. PAASCH, Clerk
By l� Deputy Clerk
Elsie PigVlt
H 24 7/72-15M
` 4, 1
iP
. Y �/ �
NATIONAL As30CIAT m OF CouNTIEs Research Foundation
1001 Conneodaut A,e., N.W. . Washington, D.C. 20039
Area Code 202-NAtional "701
1 December 1972
r.e QaW, RECEIVED
Mr. 3�es-F�-Y.�a��r, Chairman
Board of Supervisors
'^^ '7th 9t Po.SOk 91/ DEC -1972
p�Ca. fL94805 W. T. PAASCH
N1gr/;X1e,Z f35 73 CLERK O RA CO SUPCORVISORS
BY Deputy
Dear Mr. Kenny:
The National Association of Counties (NACo) has recently received a grant
from the Department of Health, Education and Welfare (DREW) to conduct a
one-year pilot project in six counties pursuant to DREW and NACo's interest
in the integration of human services delivery.
A finely honed definition of services integration has yet to come forth.
We are using the following: the linking together of administrative (man-
agement type) services (i.e. , joint planning, co-location of staff, joint
evaluation, purchase of service) and/or direct provision of services (i.e. ,
outreach, intake, diagnosis, case conference) so as to enable a number of
service providers to treat an individual's or family's need in a more coor-
dinated and comprehensive manner than any one of the providers could while
acting alone with the recipient(s). 1
The purposes of this grant are two-fold. The first is to retrieve data
which will be helpful nationally and locally in testing various techniques
of human services integration on the county level, and thus, pre-testing
the proposed Allied Services Act. The Act would allow coordination of
services at state and local levels and substantially reduce bureaucratic
obstacles. The second is to provide technical assistance to six pilot
counties as they develop a capability for human services integration.
Due to the nature of this grant, our information retrieval and technical
assistance will be fairly limited. However, those counties selected to
participate as pilots will certainly benefit from working with our county-
based aonsultants -- a human resource specialist and a county management
specialist -- and others on the NACo staff. The counties will further
benefit from exposure to what is being done in Washington with the inte-
gration of human services delivery, legislation, and other general infor-
mation sharing in this regard. It should be pointed out, however, that
there are no federal funds available to counties under this particular grant.
1. We are building on the definition set down in "Integration of Human
Services in HEW: An Evaluation of Services Integration Projects",
a joint effort by Marshall Kaplan, Gans, and Kahn and The Research 1
Group, Inc. , August, 1972
w
1 December 1972
Page 2
Each pilot county will be visited for approximately three days during the
coming year. These visits will then be followed up by telephone, as we
prepare the data, and by an additional technical assistance trip if necessary.
NACo hopes that other counties will also profit from the pilot experiences.
We are planning to include our findings in County News andinworkshops at
meetings across the country.
Enclosed please find a Questionnaire which we have developed, in close
cooperation with DREW, intended to provide information regarding your
county's current involvement in the integration of human services delivery.
it will be used as a tool in the final site selection process. If your
county would like to be considered for participation in this effort, please
return the completed Questionnaire at your earliest convenience.
The DHEW will play a major role in the selection of the pilot counties.
They have asked us to insure that the six pilots represent varying levels
of services integration activity; we are looking for a heterogeneous mix,
not only in this regard, but also in relation to county population, pop-
ulation mix (urban, suburban, rural) and geographical location.
Thank you for your time and consideration. Please feel free to call,
(202) 628-5617 or 5496, if you have any questions concerning your invole-
ment or interest.
Friendly like,
Al T leton, Director
Allied Services Project
Enclosures: Questionnaire
Allied Services Act
cc: Mr. J. P. McBrien
Approved: P I I
Michael Gemmell, Director
Contract Research
. I D*bcr 1972
ASA PILOT SELECTION QUESTIONNAIRE
I. Name of County CONTRA COSTA COUNTY, CALIFORNIA
II. Questionnaire sent to:
A. Executive Officer Mr. James P. Kenny, Chairman. Board of Supervisnra
Address 10037th Street
Richmond, California 94805
City State Zip
Telephone
(a/c)
B. Copy(s) sent to Mr. J. P. McBrien, County Administrator
III. What is the structure of your county government? Please include the following
data: Elected or appointed head, county manager, role of county board, length
of terms of office, and any other pertinent information.
IV. What is the 1970 population of your county?
Is this population best described as Urban, Suburban, Rural or mixed?
If mixed, what percentage of your population falls into these categories?
% Urban x Suburban 7 Rural
V. On the following pages you will find •a list of DREW Human Service programs which
are eligible to be integrated under the proposed Allied Services .Act. The intent
of this section is to indicate those categorical programs, from the areas of health,
social services and education, which are provided in your county.
Columns one and two indicate services administered or purchased �y your county.
Columns three, four and five indicate services administered/provided in your county
(but not ±X your county goverment). In column five, please indicate if the
provider is public, private or private non-profit. Column six is for explanatory
remarks or any other comment you may want to make.
li
or
n
K,ti�• pr�G� d �?i+r4{a�
Hca�a'1�S�o��• a4' �fio;,,y� ac`
a'y'b Cyt` G^c'c� oy� .� a $a «s~~oy'ya
0
SERVICE (1) (2) o (3)
Title IV A and IV B of the Social
Security Act:
Child csre services
Foster care
Fxnily lanninq
ro,:.enaking
"using services
rotective services for children
Preventive health services
Cililu welfare services '
Child abuse and neglect services
Emergency assistance services
Other
NN
t Titles I, X, XIV and XVI of the Social
Security Act:
Old age rehabilitative services
Services to retain capability for
self care
Rehabilitative services to the blind
Aikand disabled
then
Section 314 of the public Fealth
Service Act:
ConDrehensive public health services
_rainirz of personnel
Gth�r
Title V of the Social Security Act:
"at4:r.41 health services
Child 'health services
0or
0
.0C 0 V C 0V
,
e4P , 0 p
hC'
0
0
0.1 0
SERVICE (1) (2 3 (6)
Title V oA" the Social Security
Act (continued) :
Crippled children services
Dental health
Training
of -perso-nel
Other
The Vocational Rehabilitation Act:
Rehabilitative services to the
disabled
Rehabilitative services to the
:7.entally retarded
Rehabilitative services to the
blind and dea!
Other 4
Title III of t-e Older Americans Act:
Com=unity plan-nine programs
woordinatlor. cz- azing programs
'Training o° stec--al personnel to
carry out acing -,.rograms
Transoortaticn services
1-:eal services
1--fcrration raferral services
Counseliw: sen ices
Recreational and leisure activities
maintenaice
Adul, educatf-.n
Ot!ir-r
�
DelinquencyCP
OU
Title I and III of the Juvenile
Prevention and Controland the `
Act or 1968:
Diagnostic services to delinquent
Rehabilitative services to delinquent
Weventive services to delinquent
youth
Other
Title XIX of the Social Security Act:
Mledical services to AFDC families
�
wx blind and .disabledRehabilitative services to AFDC '
elizible for medicaid benefits
fazilies and the aged, blind and
disabled eligible for medicaid
Part B,C,D and E of the Co=Unity
!-!ental health Centers Act:
holism services
.':nrcotic and Drug addiction
pr,avention services
'-:arcotic and Drug addiction
re -sbilitation services
?erscnnei staffing
'
o
COOnC'
0� N
10 C'
0 Z�
CO
10 vz'p!� '��P% 412P t-
C'AV rep
*0
-
SERVICE (1) (2) 0
?art C and D of the Developmental
Disabilities Services and Facilities
Construction Act:
Planning of facilities for the
mentally retarded and other
persons with developmental
-4isabilities
enation of facilities for the
mentally retarded and other persons
with developmental disabilities
Persennelstaffing
Other
LM The Adult Education Act:
Education services to adults
Other
Other Services:
i
VI. Briefly describe any administrative linkages that tic togctuer, or
consolidate, the management of service providers i.e. joint funding,,
joint planning, information sharing, co-location of staff, joint
evaluation, purchase of service, etc.
A. .Indicate whether these administrative linkages are among general
purpose government (public) units.-- i.e. towns, cities, munic-
ipalities, counties, etc. r or between public and non-public
(private) units -- i.e. United Way, etc.
B. Please indicate the stage of progress of these efforts -- i.e.
formation/talk stage; some movement, such as a study-in,progress;
recommendations being;considered.by policy makers and service
providers; inter-agency agreements actually in effect; etc.
VII. Briefly describe any direct service linkages that tie togetheror
i
consolidate, the provision of services to specific clients -- .e.
outreach, intake, diagnosis, case conference, etc.
A. Indicate'whether these direct service linkages are among general
purpose government (public) units -- i.e. towns, cities, munic-
ipalities, counties, etc. --- or between public and non-public
(private) units -- i.e. United Way, etc.
B. Please indicate the stage of progress of these efforts -- i.e.
formation/talk stage; , some movement, such as a•study' iia progress; ;
recommendations being considered by policy makers and service
providers; inter-agency agreements actually in effect; etc.
VIII. Is there one central information point within your.-county where•a
service provider (case worker) can have excess to'all the data regarding
all the services available to recipients? If not, is one being planned?
Briefly describe.
IX. How is your county involved in/affected by your state's human services
planning efforts? Are there area (regional) planning districts; how
are they organized; what is their stage of development in your area?
(Is direction provided by: LEAA's, CAMPS, A-95, comprehensive health/
mental health planning districts, Planned Variations cities, services
integration activity with one of the 17 DM demonstrations, economic
development districts, state initiated human resources planning districts
(HRCC's), etc.
7
i
X. At this time, are there any special effort(s) underway, or recently
completed, regarding plans for services integration? (Federal grant
for a study in your area, a locally:,financed plan, an effort` initiated
by your state planning office, Planned Variations, LEAA Special
Impact, etc.)
A. How much staff and money has been committed to these efforts?
How much by your county?
i
B. At what stage of progress are these efforts?
XI. Are you familiar with .the Allied ServicessAct? If so, in general
terms, what is.your opinion of 'it? How will it assist, obstruct, or
be neutral to your_courity's efforts in the delivery,of human services
and services integration? '
.8 _
xII. Are you interested in being one of NACo's six pilots? If so, why?
XIII.. h'ould you be willing to commit: a staff person as necessary in connection
with this project? If so, who might this staff person be?
Name/Title
Department
Address
City State Zip
Telephone
(A/C)
Whom can we contact immediately if more information is needed?
Name/Title
Department
Address
City State Zip
Telephone
(A/C)
PLEASE RETURN THIS QUESTIONNAIRE TO: Ms. Mary A. Gooch, Research Associate
Allied Services Project
National Association of Counties
1001 Connecticut Avenue, NW
Washington, D. C. 20036
— 9 —
I
DEPARTMENT
HEALTH, EDUCATION. AND WELFAREG
STA
POriEE AND FEES PAID
20201
- . . ` . THE ALLIED SElt:VICES ACT
WASHINGTON. D.C. ' U s.' PllrR'r`Mt: iT OF H.E.W.
OFFICIAL BUSINESS
PENALTY FOR PRIVATE USE,$300
FOR RELEASE AT 12:00 Ni O (ED ) May 18, 1972
Office of The White House Press Secretary,Ni�• ydo ROM /tai¢C 0,'
r'#i's A c T k1 s 1#rA vvc&.'11
THE WHITE HOUSE Irb OAt %t• :pVr MM 5 Aee T
-- ,
FACT SHEETS,E�N �'i4 SS "�-` ' !NTb Lh W
ALLIED SERVICES MESSAGE r,K E Cat yyew SS.
THE ALLIED SERVICES ACT OF 1972 What.Allied Services is Intended to Accomplish
The legislation would (1)enable a coordination of com-
plementary but currently separate services at State and
over,the 'pastf forty years, and particularly in the last local levels and,(2)provide the;necessary,,toals,to allow
decade the Federal Gavemmont has legislated a host of State;:and,local government .to ,eliminate ,bureaucratic
narrow;hu man 11services'prog 1, As a result;the Depart obstacles. This is,necessary .in order, to promptly treat
ment of HEW ;now administers ;over 200''categodcal social needs and speedily remove social dependency.
health„'educational andaodal ,services programs::Tlii= r
proliferation of'Federat services h aiined at dealing wlth a
multitude ofhuman needs • ;' �
1. WHAT IM ACT WILL DO:
However, these tseparate�and zape,dalhad programs result in
services,which are. For The People Served:
+►:'delivered'in'a fr ignlentad way`which docs not meet 1. Provide'`fot comprehensive probtem diagnosis and
the mWti `
service lannin
n. pie needs of people , � t : _ planning.'
• without''common 'goals,'conunon service ares$, ar 2. Enable a.ran of services to be accessible through
Se .
common” planning' processes `,designed to remove integration'af separate service institutions.
people from dependency:
3."T)ranifei'the 'harden of responsibility for getting
• iiteffident, duplicative and confusing for people in appropriate services assistance from the''peopte to
need ,3. „ : e system.
• lacking in accountability, due tto, their failurer'to 4. Improvo convenience through coniolidation' and
in the human services
planning piacess. -
iriyaI' State and local elected officials adequately simplification of'forms'and procedures'.
For Governmental Effectiveness:
From the peispecdve`of the people served :
1; Bririg'State and local elected officials'niore directly
4 they are not treated'`as 'whole person; having into the delivery of services'business
interrelated needs .. ;
2. Encourage M'creation-of State and'local integrated
9 the burden for navigating t'hrough the system is on service plans,.through a project planning grant
the people not the'acrvice providers. authoisry` ' r
they;often have prolonged needs'for public services 3. Authorize the Secretary of HEW to`waive categori
'because:` their.prablems are 'not comprehensively cal, regulatory and technical provisions which im-
diagnosed in the twat instancie ' pe dethe'integration of'se'Aces.
.. t, t ;iz::r ':if . - .. ., .€. ;ti�j',.J �.. .. > .r.;�1r•.,...r'. __.., ;:. .`P{
• they become frustrated with overlapping agencies 4. Insist as a prerequisite for State planning aid that
and lose confidence in government at all levels. common service areas be established.
S. Authorize the Secretary,to consolidate the planning _ !
of all HEW administered programs;included"in'State r $UMAN ERVICE PROGRAM VERED
and local,Allied Services pro ram ,,I .,, Excerpts from President Nixon's BY ALLIED SERVICES
_ _..
planning grant.
1972 State of the Union Address The,HEW Human Service programs eligible to be Services Act makes, reference to the following programs
6. Permit the transfer of funds among specified HEW
integrated under the Allied Services Act include rate- encompassed by the legislation. This list does not specifi-
announcing the , gorical programs from the functional areas of health, rally incorporate all the Department's programs which are
Programs to achieve maximum effectiveness. x social services and education.Section 202(a)of the Allied potentially eligible.
Ill. HOW THE BILL WILL WORK, Allied Services Act
Program Description
• As a first step, the Governor of a State must choose to
participate and designate common,service boundaries `A*1
NEW APPROACH TO THE DELIVERY Title IV A&IV B of the Social Security Act Child care services, foster care, family planning homemaking and
OF SOCIAL SERVICES housing services, protective services for children, preventive health &
• Local,,plans would be developed by local elec ed child welfare services, child abuse and neglect services, emergency
officials, or combinations thereof,which would invo�ve qs a further step to put the machinery of government assistance services.
the various public and.private providers'off humans ,-
seniices, Iii proper working order, i will also propose new social Titles 1, X, XIV and XVI of the Social Old age rehabilitative services,services to retain capability for self care,
tion to reform and rationalize the way In which social
• services are delivered.to families and individuals, Security Act rehabilitative services to the blind and disabled.
• Local plans'"would'tic'consolidated"by`�the``-Cove—icor Today it often seems' that our 'service'programsare Section 314 (d) of the Public Health Service Comprehensive public health services and training of personnel.
into a State Plan for approval by the Secretary of unresponsive to the recipients'needs and wasteful of,the
Act
taxpayers' money. A major reason is their` `extreme
fragmentation. ,Rather than "pulling , many services Title V of the Social Securit
• A minimum,of four human services programs,Includ- together, our present system separates them into`narrow Y Act Maternal and child health services, crippled children services, dental
Ing the •ublic'social services ro ram must participate health,training of personnel,
g p p g p p and rigid categories. The father of'a'family'is helped by
In State and local Allicd`Services plans. one ro am 'his daughter b'. .another; and ..his elderl
p ' y �' The Vocational Rehabilitation Act Rehabilitative services to the disabled, mentally retarded, blind, and
parents`•by a.third"An Individual,goes to ane place far deaf.
IV. WHAT THE BILL PROVIDES IN ASSISTANCE nutritional help, to another for health services;and to still
another"for educational cour ieting. A'conirriunity,find! Title III of the Older Americans Act Community planning and coordination of aging programs,training of
• Make available, Federal assistanee,..in ;the form of that It cannot transfer Federal funds from one program special personnel to carry out aging programs, transportation services,
planning and implementation grants,fund transfer,and area to another area in which needs are more pressing, meal services, information referral and counseling services,recreational
waiver authority, for State and local officials.; Meanwhile, officials at all'levels of government"find and leisure activities,home maintenance,adult education.
themselves wasting enormous amounts of time, energy,
• e Provide,incentives.for the.planninandatory nation-wide time and energy gand implementation and the taxpayers' money. untangling Federal red tape—
of goals Title 1 and Ill of the Juvenile Delinquency Diagnostic, rehabilitative and preventive services to delinquent youth.
rather than impose mand dollars which could better be spent
standard requirements. in meeting people's needs. Prevention and Control Act t 1968
We need a new approach to the delivery ;of social Title XIX of the Social Security Act Medical and rehabilitative services to AFDC families and the aged,blind
• Authorize State and,local elected officials once plans servicesonewhich is built around people and,not around and disabled eligible for medicaid benefits.
are approved, to transfer up to 2S% of HEW funds programs. We need an approach which treats a person as a
between up
programs included in the plan,depending on whole and which treats the family 'as' a unit. We need to Part B, C, D, and E of the Community Alcoholism services, narcotic and drug addiction prevention and
their priorities, break through
to rough rigid categorical wails, to open categorical 'narrowHealth Centers Act rehabilitative services,personnel staffing.
bureaucratic consolidate and coordinate
• Permit the Secretary of HEW to waive statutory or related programs in a comprehensive approach to related Part C and D of the Developmental Disa- Planning and operation of faculties for the mentally retarded and other
start-up administrative costs,of putting these systems in The
regulation-based restraints and provide grants to cover problems.Allied Servicer Actwhich"will roan be submitted bilities Services and Facilities Construction persons with developmental disabilities,personnel stang,
start
operation. to the Congress"offers one set of tools for carrying out Act.
ffi
that new approach in the programs of the Department of The Adult Education Act Education services to adults.
• Empower the Secretary and the States to consolidate Health, Education and Welfare. It would strengthen State
the planning authorities across the programs partici- and local planning and administrative capacities,allow for
—- paling in State and local Allied Services plans. the transfer of funds among various HEW programs, and ,
permit the waiver of certain cumbersome Federal require-
V, WHAT WILL THIS COST ments. By streamlining and simplifying the delivery of
services, it would help more people move more rapidly
• It is estimated that up to $20 million .would be from public dependency toward the dignity of being
required for planning and implementation grants in the self-sufficient.
first fuil,year,. Good;men and good money can be wasted,on bad
mechanisms. i3y giving diose mechanisms a �thorough
• Federal programs subject,to being coordinated under overhaul, we can help to restore the'confidence of the
the Allied Services Act involve several billiondollars. people in the capacities of their government.
.2-
15-
i
tape..which should be,helped to work in harness to better This legislation-•is,the.-product of cooperative consulta- THE!WHITEHOUSE -
serve,the,public.,But•,the, ultimate breakdown is at the tion among.:various:.levels .of government and interest
local level-where the services meet the people. groups. Those consulted were governors, mayors, and FOR RELEASE AT,12:00 NOON(EDT) MAY 18,1972
The-Allied Services Act would encourage coordinated county,managers, State.and local program officials,social ;
planning and delivery of human services. It would allow workers.and;volunteer.:groups, social interest groups and Office of`fhe White House Press Secretary `
the waiver.of burdensomeadministrative requirements.It the people .who actually seek,and receive our assistance.
would permit State and local officials to transfer Federal We met with them. to; ,explain, the concepts of the -
funds :from one program to another, based on local legislation and discuss its provisions, and demonstrated in TO THE CONGRESS OF THE UNITED STATES: For the uninformed citizen in need, the present
priorities and resources. the process that, productive,;interaction among partici- • ;. : 1 ' fragmented'system'can become a nightmare of confusion,
Under the proposed legislation: pating institutions and individuals is possible. In responding to steady public demand over recent inconvenience,and°red'tape.
• HEW could underwrite the costs of State and loco! T� Act implements what,President Nixon outlined in decades for'i fore=and more human services, the Federal :The father of a`family is'helped by'one program,'his
his State of the Union Message this year when he called Government created a host of assistance programs de- daughter by another; and;his eideily parer ts"by'a third.
punning for comprehensive service delivery coos- for "a new approach to the delivery of social services—one signed to meet a wide variety of human n'ee'ds ' ' ` An individual goes to one plate for nutritional help, to
dinating assistance to a wide range of human needs; ,
which is built around people and not around programs. These many programs were established one-by-ane over another' for r health services,' acid to"still 'urtother for
• Coveriiars would designate local agencies to develop` The President called for "an approach which treats the a considerable number of years. Each'of the target educational counseling.,,'
such plans, With governmental agencies, voluntary-- persons as a whole,and the-famlly-as a,unit. We need to problems was-examined-in--isolation,-and-a,program to They are not the-only victims of fragmented services-
organizations and recipients of services to be repre break, through,the rigid ,categorical:walls," he said, "to alleviate each problem was devised separately--without others include the taxpayers, and the public officials and
seated In the planning; open.up,narrow.bureaucratic .compartments, to consols- regard to programs which had been, or would be, government employees seeking to operate these``diverse
Once the plans are approved,,States and localities date and coordinate,related programs in:a camprehensIve developed for allied problems.,,, programs..,Vast.;amounts;of.time, money, and a er `are
a roach;ta related, robletns.". The result is that a corn asslonata iimment unwit• '
could shift up to 25,of Federal funds amount the PP. p P Bo expended in adniinlstiative procedures which overlap'and
,participating service prograrm;to better,meet local M, :,gpproach#can;,help,correct the entangling oris- tingly created a bureaucratic jungle that baffies ."and' tduplidate=rather than being efficiently organized to'help
needs;,,.' alliance,of,uncoordinated, programs., ,It can encourage shortchanges many citizens in need. The unintended 'people:
State and local;,elected.,officials and;;administrators to administrative snarl wastes taxpayers' money. And it The Allied Services Act of 1972 would give State and
+ The Secretary of HEW,could waive technical ror
„ „
il•administrativerequirements•which impede integra establish;programs.•goazed ,ta serve people and families frustrates needed efforts to treat the whole person. local governments greater legal freedom and planning
according.to their,individual needs,_It can serve them in The Allied Services Act of 1972,which I ani proposing tools needed for the long-overdue job of modernizing the
tion; ways leading directly to the!reduction and the prevention today, would give State and local officials authority to delivery of social services into consolidated programs.This
0' States could receive Federal grants to ineet start-up of, dependency, toward,,Iives of, greater dignity and consolidate the planning and Implementation ofthe,many process would begin at the option°of elected Sfate and
costs of administrative consolldation: self-sufficlency.;; separate,social service iprograms Into 3treamiined;.compre- local officials, and would be highly iespontive to'their
hensive.plans—eachcustom-designed forfa:particular area. needs.
Such plans could eventually.•makelt1possible to assess It would permit knowledgeable'State and local people
the total human
service needs of an entire family at a to break through rigid categorical walls, to open up
single location,with Ia-single i application Most�dppllcants narrow bureaucratic compartments, to consolidate and
n e than:ono service; and now:must trudge to
eed mar coordinate related programs in a comprehensive approach
office after,!office applying :for,lassistance ---from one to.related"social aid problems-designed to�match widely-
program at a time—with the result that they may not varying State and local needs.-
obtain,all.the iservices they�need,;or may be discouraged UUnder!theAct, the Federal .Government would snake
altogethor.fcom seeking help«t dollars,available for the costs of developing consolidated
The Department.of.r.Health,.Education,�and:�Welfare plans;:and-it would also'be,piepired to',underwrite, the
f:: • , , adrninisters some 200 different human assistance pro- administrative start-up costs when the comprehensive
t grants yin;..,about'a;;dozen,,major fields--to<heip needy services program went into effect.
citizens iwith such services t as mental:health, vocational i:To encourage,'and facilitate�such unified services;the
rehabilitation, manpower `:training,.:food-.ands+nutrition, Secretary of�HealthEducation,'and Welfare"would,be
special,programs for,the aged,education,juvenile counsel- empowered by the:Aceto approve the transfer'of up to 25
ing,alcoholism and drug abuse,housing and public health: percent of any existing•program's f funds 4ntot any,'other
Each,of=these iprograms`has its oWd'eligibility rules, purpose or.1;progrims involved In an approved local'altied
application+ forms, management,- and '.4dmiiiistrativeservice plan--a'•logica2 flexibility now hindered'by'Federal
policies. Each program•usually has:its`own,office location program regulations.
and,Its iown geographical,coverafe area. _ `fThe Secretary��also• could,provide a 'waiver oP.-any
decal rules and regulations;_in short`now keep'each existing program regulation which barred orhimperea'an
social'service program locked up in a little world of its existingPro m from' artici atin 'iwsuch'ac!vt
Y
own. This is not only wasteful and inefficient-it also !,The Allied Seivicbs'Act-charts=a new course for•the
;; ,•, prevents State and Local efforts to close the gaps in social delivery of social services.It is'acomplex reform p'ropo``sal
service delivery systems. with many' major 'rariiifications for''many established
y n my,State of the Union Message this year: groups—government and f private-on the Federal, State,
I states !
::.. "We s need.`a new`;approach'ta' `the`delivery' of social and lcal levels.
services-one which Is built around people and not around The consideration and eventual passage of this legisla-
-•: f,f programs. We need an approach which treats a person as a tion'by tha.Congress would only be"a start: At ilio Barrie
j whole and which treats the family as a unit." time, human service delivery,refcirm would=have,to•be
-?ar, •3-
yy
.. .-.>- ,; ,... ....,,:.,, .. '- } x.. .:.v.'x .1n7 .-..�. '^Cf @.t.r z '5�.4:t..::�.�_,..�e��"�6 xr•�. �
i
debated all across the country by affected governments ;social services plans to treat the special needs, resources program be In effect In Al pblit- of construction (including
and groups, In order to decide how they would make best and desires of their particular areas. ical subdivisions of the State; renovation,expansion;or III.
use, of,the, proposed freedoms and incentives in their Such efforts should result.,in government ,built for teration)of facilities,
particular`riteas. people, geared for across•ihe-board performance, and (B) a requirement that a single or a and shall not be made for periods in ex-
This Is one more effort by my Administration to make designed for results rather than bureaucratic ritual. specified agency -administer or cess of two years except where the See.
government more sensible, more responsive and' more If we airing this about, we shall not only be providing supervise the administrationof retary determines that grants with re
effective at the local level—where most citizens actually better social services—we also shall be taking a giant step the program;and spect to a longer period are needed to
meet the practical impact of government. toward the restoration of the people's confidence,in the carry out a significant expansion of the
In tills important proposal, as in my recommendations common sense performance of their government. (C) any technical or administrative re; State's allied services plan.
for Revenue Sharing,we would summon forth the creative quirement applicable to any
energies and the local expertise of State and local officials, RICHARD NIXON program JOINT FUNDING
� pe human services ro am included
rather than.keeping them strapped in.a straitjacket,of In the State or local plan.
inflexible Federal regulations. THE WHITE HOUSE, Sec. 204.Pursuant to regulations prescribed by time
They would be freed—and thus would be challenged— Special Grants for Administrative Costs President where funds are advanced for a single project or
to direct the development of customized,comprehensive May 18, 1972 program pursuant to more than one statutory authority
(d) (1) The Secretary may make grants to any by.a single Federal agency,or by more than one Federal
State which has in effect a plan'ap- agency, to an agency, organization, or person assisted
proved under section '202, to assist in under this Act, or which administers or supervises the
DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE meeting the cost of planning for or oth- administration of a project or program which is included
OFFICE OF THE SECRETARY erwise preparing to'provide'human sere in a plan for the coordinated provision of services which is
Usk - ices on a coordinated basis under the approved under this'Act,an one Federal agency may be
WASHINGTON,D.C.. zazor State or local allied services tan and the es Y t Y Y
Ma 18, 1972 p designated to act far all in administering the funds ad-
May administrative costs incurred in the co- vanced. In such cases a single non-Federal share require.
ordination of services provided under ment may be established according to the proportion of
either such plan,which are necessary for funds advanced by each agency,and any such agency may
the more effective and efficient pro waive any technical grant or,contract requirement(as de-
Honorable Carl Albert a. grants to State and local governments to develop vision of human services under the plan fined by such regulations) regardless of whether such re-
Speaker of the House plans for programs to coordinate the provision of and which cannot be met from other quirement Is imposed by statute or by regulation, if such
of Representatives services and to create the capacities necessary for funds available. requirement is inconsistent with the similar requirements
Washington,D.C. 20515 such program development and operation; of the administering agency or which the administering
(2) An application for a grant under this agency does not impose. Nothing in this section shalt be
Dear Mr.Speaker: b. authority in States, and local governments with subsection shall describe the specific construed to authorize the expenditure of Federal funds
approved allied services plans to transfer up to 25% activities for which the assistance would for purposes other than those for which they were uppro-
Enclosed for the consideration of the Congress is a draft of their funds from one federal program to another; be used. The application shall set forth priated.
bill to provide for Improvement in the delivery of human the manner in which the grant applied
services, and for other purposes. I am also enclosing a c grants to States and local governments to cover the for will be allocated among the State
brief summary of the bill. This bill would carry out the administrative costs of Implementing plans for the agency and the designated local agencies Statement
recommendations of the President in his Message on the coordinated delivery of human services; which have approved local plans. by
Allied Services Act. Elliot L.Richardson
d, authority In the Secretary of HEW to waive statu- (3) In considering applications for grants Secretary of Health,Education,and Welfare
Throughout the country,numerous individuals find them- tory and regulatory constraints of a technical or under this subsection, the Secretary
selves in various degrees of economic and social depend- administrative nature which impede the develop- shall take into consideration(A) the de- The•Allied Services Act of 1972—announced by Presi-
ency. Some are institutionalized. Others,not capable of ment of coordinated human services programs: b gree to which the State allied services dent Nixon in his State of the Union Address and
self-care, are in community based alternative care facili- plan demonstrates that substantial prog. introduced today in Congress—is a badly needed antidote
ties, Some, capable of self-support, are living at home but We would appreciate It if you would'refer the enclosed ress will be made within the State In to the ineffectiveness of human service programs caused
are not able to obtain employment and become self- draft bill to the appropriate committee for consideration, carrying out the purposes of this Act, by government red tape.
supporting. There are numerous Federal, State,local,and and we urge favorable action on this proposal. and (B) the extent to which a grant Eight out of every ten persons who turn to their
private programs which deal with some part of the We are advised by the Office of Management and Budget under this subsection is necessary to government for help have more than one arca of social
problem which results in these conditions:health,mental that enactment of this proposed legislation is in accord assist the State in carrying out its plan. need. They are met with an overwhelming array of
health, alcoholism and drug addiction treatment, educa- with the program of the President. Grants under this subsection shall not separate service channels which too often frustrate,
tion, manpower training, vocational rehabilitation, child be available— duplicate and suffocate rather than serve. This stifling
care, and juvenile delinquency prevention programs. But Sincerely, system results in an exhausting cost both in human and
there is no focus on combining those tools through joint (i) to meet the non-Federal financial resources.
planning and coordinated operations to reduce or elimi- s,,,L, ter share required under any HEW expenditures for human service programs which
nate these various,interrelated,conditions of dependency. other federally assisted pro• could be coordinated by this Act amount to approxi-
Secretary gram,or mately $10 billion annually. This investment does not
The Allied Services Act will encourage joint efforts now produce good enough results. There are layers of
towards this goal.It will,provide for the following: Enclosures (ii) to meet any part of the cost government—Federal; State and local—ensnarled in red
.4. - 13-
at such time or times and upon such conditions as the local agency or any other agency SUMMARY OF THE PROPOSED"ALLIED local plan. Third, the Governor must designate a State
Secretary may provide,and he may establish for such con- participating in such local plan SERVICES ACT OF 1972" agency or office which is under his direction and which
solidated planning grant a single non-Federal share re- with respect to any program in- will have responsibility for developing a State allied
quirement according to the proportion of funds provided eluded in such local plan for the The proposed "Allied Services Act of 1972" is in- services plan incorporating local plans and implementing
under each program, year in which such transfer is tended to encourage States and localities,in close partner- the State plan.
made, ship, to coordinate the provision of human services to Section 201(b) provides that to be designated as
(2) Any State with an allied services plan for use in carrying out for such year one or Individuals and families which will assist them in attaining described above, a local agency must be an office or
approved under section 202 for any fis- more of the other programs so included. in the greatest feasible degree of personal Independence and agency,of a unit of general purpose local government (or
= cal year,or any local agency with a local any case in which the State agency or a local economic self-sufficiency, or which will prevent individ- combination of such units) which has been chosen to act
plan approved and Incorporated into agency Intends to transfer funds pursuant to uals and families from becoming increasingly dependent in this capacity by the chief elected official (or officials)
such a State plan, may use any Federal this subsection,it shall so indicate In the State upon public and private programs for bath financial support and personal care. of the unit (or units), or of a public or nonprofit private
assistance which is extended by an of- plan, and shall specify the programs involved agency(which, for this purpose, Is under the direction of
ficer or agency of the Department of and the amounts to be so transferred. The Act would define various key terms. For instance, the designated State agency), which can plan for and
Health, Education, and Welfare and the term "human services"includes any services provided provide a broad range of human services, and must give
which Is available,as determined under (2) Any Federal assistance transferred pur- to achieve or maintain personal and economic Independ- assurance, satisfactory to the Governor, that it has the
paragraph(1), for planning for or under suant to this subsection shall be subject ence. The "coordinated provision of services" means the necessary,ability to develop and carry out the local plan.
any program which is included in such to the non-Federal share requirements provision of human services needed by individuals and The Governor may designate a public or nonprofit agency,
State or local plan, for planning for the applicable to such assistance prior to families,in such away as to(I)facilitate access to and use other than an office or agency chosen by a unit(or units)
provision of human services under any such transfer, of the services,.(2)improve the 'effectiveness of the of general purpose local government, arty if he finds that
so included. In an case In services,and(3)use service resources more efficienti and
program y y there Is no such office or agencywhich has the capacity to
which a State or local agency intends to (3) This subsection shall not apply to grants with,,minimal duplication. These definitions help, to carryout a local allied services plan.
use funds pursuant to this paragraph, it to States available under title 1,X,XIV, restate the ,goals,of the Act inclear terns-to lessen
shall so indicate in the State or local :XVI, or XIX, or part A of title IV, of dependency through mare effective service delivery. The local allied services plan must be approved by the
plan and shall specify the programs in- the Social Security Act or grants to lo- Title I of the bili provides authority for the Secretary State;agency and Incorporated into the State plan before
volved and the amounts to be so used. cal ,educational agencies or to States to make various types of project grants which'nv'y be any of the forms of Federal assistance described below
under, title I of the Elementary and needed by States and localities to plan and develop the can accrue. The local plan must specify the agencies and
Fund Transfer Secondary Education Act of 1965. capacity for the coordinated provision of services:,There is organizations which have agreed to participate In the
also authority to provide technical assistance for planning coordination effort, describethe service needs and''re-
(b) (1) In order to (A)carry out Its State allied Waiver of Program Requirements or.Implementing a specific coordinated services'program. sources"within the service area,enumerate the programs-to
services pian approved for any fiscal Also, the Secretary,is given authority to evaluate,directly be included under the plan, and provide reasonable
year under section 202,(B) expand or (c) (1) Any State with a plan approved under or,by grant,or contract, the programs established under assurance that progress will be made in coordinating the
improve the provision of human services section 202, or any designated local this Act. In addition to any salary and expense money he provision of services:This assurance is to be provided by
under any program included in such agency,with a plan approved and Incor• may,wish to.devate.to evaluation, theSecretary may also describing the specific functions and services to be
plan, and (C)`better achieve the pur- porated in the State Plan, may apply to use for,this purpose amounts not in excess of 1%of the coordinated, the benefits to individuals, and the''adininis-
poses of this Act, a State is authorized the Secretary for waiver(with respect to amounts appropriated to carry out the Act. trative,e'ffrciencies to be achieved by the coordination.
to transfer an amount, not in excess of the year for which the plan is approved) Title 11 ,describes the State and local allied 'services It is''ihe intent of this bill to have the active and
25 per centum of the Federal assistance of any requirement which the State or programs contemplated.under this Act. Section 201(a) continuous involvement of voluntary organizations,client
extended by any,officer or agency of local agency certifies is impeding the im- describes the.steps which must be taken by the Governor groups, service consumers, and local social service ora-
the Department of Health, Education, plementation of its plan and which is as conditions precedent to the,submission of a State allied viders in the planning and administrative processes of the
and Welfare and available for expendi- imposed by statute or regulation upon a services plan. First, he must divide the Stateintoservice program. Therefore, to ensure the program's responsive-
ture by an agency of the State with re- program.(A) included withinthe plan Areas (within which human. services programs. will be ries 6,'the,paiticular needs of each community,each plan
specs to any program included in such for the coordinated cavision of services coordinated), after taking into consideration,factors'such
p must be accompanied by assurances that interested
p ycarrying ( ) h as the distribution, tlirou out the.State of service needs agencies, organizations,and individuals were afforded the
plan for such ear, for use in and B far t e administration of which gh
out for such year one or more of the at the Federal,level the Secretary is re- and service resources, the boundaries of planning areas or opportunity` to comment upon the plan prior to Its
other programs so included. Any local sponsible; The.aacretary shall, subject areas,for the delivery of individual,se'rvice,programs, and submission to the State agency and will have an effective
agency with a plan approved and incor. to the limitations in,paragraph(2),grant the location of units of general purpose local government. , chaI nnel ,through which their views can be known with
porated into the State.plan for any fis- such waiver for such year.upon receipt In the process of delineating'service,areas,he must inform respect to the ongoing administration of the plan.
cal year of the State in which it is situ- of assurances, satisfactoryto him, that UnitsIof general purpose,local government of his plans and Section'202(a) prescribes'the requirements applicable
ated, is authorized to transfer an all Federal funds under:programs with consider their comments and recommendations. The to a'.State allied services plan. An approvable'plurt must,
amount which is- respect' to which 'such waivers are service areas should conform; 'fo the extent "found (1}through a brief summary of the Incorporated local
granted-will be�expended only for the practicable by him, to any other areas within the State plans, describe the current status of the coordinated
(A) not in excess of 25 pier centum of purposes for which they were appropri- established for the planning or administration of human provision of services,and the steps which will be taken to
the Federal .assistance ;extended ated. services programs. Second, he must determine, after achieve a greater degree of human services coordination,
by any; officer-or agency:of the consultation with the various public and private service (2)provide assurance that under each local plan services
Department,of Health,.Education, (2) Waivers under this subsection may apply agencies, whether a local allied services plan will be under the assistance titles of the Social Security Act will
and Welfare,and only to— developed for any given service area. In the event that it be coordinated with services under: any other three
is, then the Governor designates a local agency to take the human services programs, any other HEW supported
(B). available for.-expenditure,by,such (A) a requirement that all aspects of a lead in developing and assuring implementation of the programs which the Secretary may specify,and any other
- 12- -5-
such programs, regardless of whether they are receiving provision of human services under any,included program: (v) title I or III of the Juvenile (1) the requirements of section 201 have
Federal support, which the State may desire to include, Second, a State or local agency.with an approved plan Delinquency Prevention and been satisfied;
and (3)provide that the State agency will provide any may transfer up to 25%of the Federal assistance available Control Act of 1968,
other relevant information which the Secretary may for use under any HEW-assisted program included in the (2) the plan fulfills the conditions specified
request. plan to be expended in carrying out any other included (vi) title XIX of the Social Se- in subsection(a);
Subsection (b) directs that an opportunity to`review programs. Assistance transferred under this authority curity Act,
and comment upon a State plan submitted for approval carries with it the matching rate established under the (3) the plan is so designed as to accomplish
be afforded to the head of any Federal department or program for which it was'originally appropriated, so that (vii) part B, C, D, or E of the the purposes of this Act and, in doing
agency which is extending assistance to a program no incentive to transfer will , be created merely by Community Mental Health so, to assist individuals and families to
Included within that plan. disparities In matching rates which .exist among the Centers Act, attain a greater degWe bf personal inde-
Subsection (c) directs the Secretary to approve a State included programs. The transfer authority does not apply, pendence and economic self-sufficiency;
plan If he finds that: (1)the Governor has compiled with however, to the open-ended assistance programs under the (viii) part C or D of the Develop- and
the preliminary Organizational requirements prescribed In Social Security Act, or tri assistance provided under title 1 mental Disabilities Services
section 201, (2)the plan meets all the specified require- of the'Elementary and Secondary Education Act (con• and Facilities Construction (4}, the';plan Is so designed as to achieve,expansion ments, and (3)the plan is designed to accomplish the sistent with the Administration's special education Act, reasonable : sion of Its coverage
purposes of the Act to.achieve expansion of Its coverage revenue sharing bill). both with respect sio
to other services and other service areas on a reasonable Thlyd, the Secretary .Is authorized to waive require- (ix) the Adult Education Act,
basis. ments of Statewldeness, sirigle or specified State or local and ,. num
Subsection (d) provides certain penalties if the Secre- agency, or 'technical or. adn n'istrative requirements (A}. the of.services areas par-
e
r the program estab-
tary finds fellate to comply substantially with the imposed in connection with anyincluded program which, (x) any other human services fished pursuant to this title, and
provisions of an approved State plan (or included local at the Federal level, is administe,red by the Secretary and programs (regardless of
plan). He may in,his discretion apply these penalties to which the State or''local agency certifies'impedes Imple- whether they are supported (B) the programs functions, or serv-
the entire State plan or only those parts of the State or mentation of its allied services plan, Thus, it would not -with any'Federal assistance) ices included in the plan.
local,plan or service areas affected by the noncompliance. 'affect the basic protections provided by'the Civil'Rights which the local agencies
In such instances, the subsection would provide: no 'Act of 1964'or any other generally applicable legislation; may wish to include; and (d) If.the Secretary finds,after.notice to a State,
Federal I planning funds may be consolidated or inter- nor`would it apply to programs "administered by other specifies the programs to be that it is failing to comply substantially with
mingled with other such funds for 'human services Federal departments or agencies, ' included In each local allied the provisions of its approved allied services
p'lamuilng, no Federal funds may be transferred among Finally, the Secretary may make'discretionary grants services plan,and plan for any fiscal year (or that any local
programs,no requirements may be waived,and no further to meet costs of planning or preparing to carry out allied agency.designated thereunder Is failing to
payments or grants may be made (in the fiscal year for services plans, or to meet the adrninlstrative costs.of (3) provides that the State agency will make comply,substantially with the provisions of its
which the,plan Is approved) for so long as the failure to integrated services management and delivery under a'State such reports;in such form and contain- local .allied'services,plan .which was incorpo-
comply continues. or local plan, which cannot be met from other available Ing such information, as the Secretary rated into 'such,State,plan), then thereafter
Section:203 describes the various types of Federal funds.The State must indicate how it plans to allocate the may, from:.time to time require, and (during. year and until.there is no longer
assistance .which become available upon approval of,a funds applied for among,the various designated local comply with such provisions as the Sec- any.such;failure to.comply)no Federal funds
State allied services plan. Four types of assistance are agencies with approved plans.These grants are not to be retary may from time to time find nec- may,be,consolidated or transferred pursuant
available: used to meet 1,the non-Federal share requiremenb of any essary;;to assure the correctness and to section 203. (a):and. (b), respectively, no
l?ederaily assisted program and may not be made to any verfication;of such reports. requirements maybewaived pursuant to sec-
First, authority would be given bath the Secretary: State for more than'iwp years except wherre'the Secretary tion 203(c),and.no payments of grants under
coasolidatete and ocal Planning fund ernments with allied services plans to finds it Is'necessary to enable'the State to'carry out Consultation with Other Federal Agencies section 203(0),may,be,made(or,in the Secre-
P g s extended by,the Department significant expansion of its allied services plan.'' tary's .discretion,:,any;such consolidation,
;
of Health, Education, and Welfare. Thus, the Secretary Section 204 'provides joint funding authority. It is (b) If a State allied services plan,submitted to the transfer, waiver, or payment shall be limited
H
may make a single;' consolldated grant of HEW funds almost identical to 'that contained"in the juvenile delln- Secretary for"appraval under subsection (c), to pans of such State or local plan or Areas of
available'for planning for or under any program Included quency•law, the' Economic Opportunity Act, the Older includes a human'services program for which the State not affected by such failure}.
In the approved State or local allied services' plan. As a Americans Act, and the Law Enforcement Assistance Act, Federal financial assistance is being extended
corollary, a State or a unit of general purpose local It goes somewhat further' than those statutes in two by any,other,Fl assistance is department or agency, FEDERAL ASSISTANCE
government, with amn approved allied services plan, may respects: (1}it would permit joint''fundIng of several
the Secretary shall provide to the head of each
use planning funds provided by tel Department,of Health, grants made by the same agency;and (2)it would permit such department or agency a reasonable op- Consolidated Planning Grants
Education, and Vglfare `and,avx►ilable 1'fol,ariy`program waiver of`technical granf or contract requirements Im- g
portunity''to=review and icomment upon the
ncluded in,its plan, for planning in connection'With the. posed by statute as well as by regulation. State len,The Secreta shall take into can-
.
P Secretary Sec. 203. (axl) In the case of any State with an
sideration Any such-comments he may have allied services pian approved under section 202 for any
received in determining whether the plan com- fiscal year, the Secretary may,notwithstanding any other
_ plies with the requirements for approval, provision of law, provide to such State a single grant com-
- prised•of the.Federal,funds which are extended by any
officer•;or--agency•of rno of Health, Education,
fi Depart nt alth
Approval of State Pians and Welfare'and are avatfable,aaa determined in accordance
with criteria preacribed�by'theiSecretary,for planning for
(c) The Secretary shall approve a State allied serv- or under any program included in the approved Plan of
ices'planff he firids;that'i ='such State.!Paymants purs`uant,to sud grant tray be nu&
6-
,
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iw34k
rXs:;
3....ctk< +ut.Y#tit<'%:,n:4it'4..>:'SB�gt4X',"m'�,9=." r .#•'?4.` T:�F;II�"%��, '* `� �f ����'`�:
for the service area will have the capacity to cant' out a assurances that, in the process "of developing the plan, a 92D CONGRESS
local allied services plan. reasonable opportunity was afforded interested agencies, 2D SF.ssroN S93643
organizations, p
and individuals to resent their views and
Local Allied Services Plan to comment upon the proposed plan prior to its'submis-
' sion tolhe State agency and that a procedure has been
(c) In order to be approved and incorporated into established under which such agencies, organizations,and
the State allied services plan, a local allied individuals have their views taken into consideration with
services plan for a service area must be de- respect to the administration of the plan. IN THE S1�)NAT ' OF THE UNITED STATES =_
veloped by the local agency designated with
respect to such area and must— STATE ALLIED SERVICES PLAN - MAY 25,1972
Mr. BeNNr:�r fol- himself, Mr. JAVITB-1 Mr. Bins., Mr.'MATHIA8, Mr. PrnCY,
(1) specify the agencies. and organizations State Plan Requirements �
which have agreed to participate in the and Mr. TArr) introduced the following bill; whicli was read twice and
local program for the coordinated pro- Sec. 202.'(a) In order for a State to,be eligible to referred,by ufiatrimoUs consent, to the Committee-on Labor. and Public
vision of human services within the serv- participate in the program.established,underAhis title for Welfare and, if and when reported, refer to the Committee on Finance
•ice area; any fiscal year, the State agency designated under section
201 (ax3) must submit for,such year a State allied serv-
(2) contain a survey of the needs for human ices plan which—
services within the service area and an
b brief summarizing the
1 describes, y y g
inventory of resources available to meet ( )
those needs; relevant portions of each approved local A BC
allied services plan,the current status of
(3) enumerate the human services programs the coordinated provision of,services
which will be coordinated within the within the State, and the steps planned To encourage and assist States and,localities to coordinate the absence of any commonly accepted
service area;and ( for such year and thereafter, to achieve their various programs and resources.available to set of goals`or objectives towards the
a substantially greater degree of such co- provide human services in order,to facilitate the im- attainment of which all human services
(4) provide reasonable assurance that the ordination, . proved provision and utilization of;those, services :programs.should be directed, and the
agencies and organizations participating _ and increase their,effectiveness in achieving the ob- absence within .the States and com-
in the local allied services plan will make (2) provides reasonable assurance that the jectives of personal ir►,dependence, economic self munities of a.single locus of account.
progress toward coordinating their pro- services provided pursuant to all plans sufficiency, and:the.maximum emjoyment,of.life, abillty. .for. the .effective provision of
visions of services by— of the State approved under part A or B with dignity,and for other,purposes, services.. "
of,title,IV, or under title 1, X, XIV,or
(A) describing the functions to be co- XVI of the Social Security Act, will be He it enacted by; the Serrate.and.House of Repre- (b) It is therefore the.purpose of this Act to en•
ordinated or consolidated, in- coordinated with each other and with— sentatives of the United`Statesof America in Congress courage.and assist State and local agencies to
eluding planning, budgeting, Assembled, That this Act,may "be cited as the `.`Allied enter into new.cooperative'arrangements,and,
supervision,and evaluation; (A) services under,any other human Services Act of 1972". "where necessary, reorganize or reassign func-
services program for which Fed- tions, at.all levels,in the,system of the plan.
(B) explaining how the outreach, in- era assistance is extended by the FINDINGS AND DECLARATION OF PURPOSE rungfor and provision of services, in order
take, information, referral, fol- Department of,Health,Education,
to—
lowup, and related services,which •;and Welfare and which the Secre- Sec.2.(a)The Congress hereby fads that,-,
are common to each program in. -tary may specify in regulations, (1) there is a great need in the Nation today (1) provide appropriate institutional care
cluded in the local plan, will be to: restore dependent individuals to a for individuals;for whom independent
rovrded under no fewer
coordinated;and (B),,,services p status: of personal ,independence, dig. living ,is not feasible and for whom a
than;thTce,;of the following pro- nity,and economic soli-cuff ciency; high. degree;of, care.and protection is
(C) describing the benefits to the in- grams (to ahe,extent not already necessary;
dividuals and families,receiving or Included pursuant to clause(A))— (2) while much progress has been made in
intended to receive services in-
developing services which'can assist in (2) secure adequate,community based care
section 3.14 d of
eluded in the-local plan, in terms (i) O the Pub- achieving those`goals,'obstacles to the for.individuals capable of noninstitu-
of their attaining a greater degree lic Health,Service Act, , effective'provision of'those services still tional`living' but for whom self-caro is
of personal I independence or eco- exist; not feasible,
nomic self-sufficiency, through (ii), title .V ,,of the Social Se.
providing~such services on a co- curity Act, (3) these obstacles often take-the form of (3) secure" anid maintain maximum Inde-
ordinated bads in accordance with fragmentation .among many . pondence 'and dignity in a home onvi-
such plan,, and the administrative (III) he Vocational Rehablltta- and organizations ,of he responsibility ronment for those capable of solfcare
efficiencies to be achieved tion Act,. for,serving dependent Individuals,struc• with a" 'ropriate"supportive services and
PP
thereby. _
lural rigtdi , and bitiary categoriza• for whom economic independence is
:(iv) title UI:of the Older Ameri-. tion of Federal, S qte,. d local pro- not feasible,7.
and
The local allied services plan must be accompanied by cans Act, Bram', inadequate coordination and
communication among agencies and or. '(4) remove indivldual and social barriers to
ganizations providing human services, economic and personal independence
.7.
for all individuals capable of self- related functions,or(B)an Indian tribal , PAYMENTS consistent with the State plan approved
support, and assist children and youth organization. under section 202;and
in achieving their maximum potential Sec. 103. Payments for projects pursuant to grants
for eventual personal independence and TITLE I—PREPARATORY PROJECTS or contracts under this title may be made for all,or such (3) designate a State agency which is under
self-support. part as the Secretary may find appropriate,of the cost of his supervision or direction to develop
DEFINITIONS PLANNING AND CAPACITY BUILDING PROJECTS such projects and, in the case of projects under section the State plan to be submitted for ap-
101, for periods not in excess of two years. Such pay- proval under section 202 and to super-
Sec.3.For purposes of this Act— Sec. 101. The Secretary may make a grant to the ments may be made (after necessary adjustment on ac- vise and review the administration of
Governor of any State, or any office or agency of such count of previously made overpayments or underpay- the plan in each service arca in which it
1 The term "coordinated State which is approved for this purpose by the Governor, ments) in advance or by way of reimbursement, and in is in effect.
( ) provision of or to any local agency (as described in section 201(b)) such installments and on such conditions,as the Secretary
services" means the provision of human which is preparing to coordinate and consolidate services may determine. The service areas into which the State is divided pursuant
services,,needed by an individual or his to carry out the purposes of this Act, for any project to clause (1) of the preceding sentence shall conform,
family,in a manner designed to— designed to— TITLE II—PROGRAMS FOR THE insofar as found practicable by the Governor,to any areas
(A) facilitate the accessibility and uti- PROVISION OF ALLIED SERVICES within the State otherwise established for the purpose of
lization of all the human services (i) develop a plan for a program for the planning or administering human services programs or ac-
needed b the individual or his coordinated provision of services within tivities.
Y the State,or ORGANIZATION
family and available in the com-
munity, (2) strengthen the capacity of any such Designations by Governor Local Agencies
(B) improve the effectiveness of such Governor, office, or agency to plan for
services,and or carry out such a program. Sec. 201. (a) In order for a State to participate in (b) In order to be eligible for designation under
the program established under this title, the Governor of subsectiona ,a local agency—
(C) use available resources as effi• A grant under clause (1) may be made only upon applica- the State`shall,'in accordance with regulations of the Sec- ( }
ciently as possible and with a min- tion therefor which provides assurances,found reasonable retary- (I)must be—
undertaken
of duplication. by the Secretary,that the development of the plan will be
undertaken In a manner which will afford adequate d by
oppor- (I} divide the entire State into distinct areas (A) an office or agency designate
(2) The term "human services" means serv- tunity for full participation by any agency carrying out a for the purpose administering areal the chief elected official a by
ices provided to individuals or their fam- human services program within the jurisd{coon of or area allied services plans developed under facials,of a combination of units
pies In need thereof to help them served by the applicant, and that the plan will be de- subsection(c)(hereinafter called service of general purpose local govern-
achieve,maintain, or support the high- veloped only after considering fattythe needs for services areas),afterconsidtring factors such as ment to act on behaif of such
est level of personal independence and and resources therefor of the area served by the applicant. the incidence'of needs for human sere—
economic self-sufficiency, including Ices, the distribution of services re-
health,education,manpower,social,vo- EVALUATION AND TECHNICAL ASSISTANCE
catIonal sources, the boundaries of existing areas (B) an office or agency of a unit of
rehabilitation, aging food and within'the State which were drawn for general purpose local government
nutrition, and housing services;and the Sec. 102: (a) The Secretary 'may conduct evalua• the planning or administration of which isdesignated for this pur-
temt"human services program"means a tions, directly or by grant or contract,of programs for the human services programs,and the loca- pose 1 by the chief elected official
project or program under which one or coordinated provision of services assisted under title 11 in tion of a unit or units of general pur• or officials of such unit,or
more human services'are provided, order to determine the achievements of such` programs pose local government and after inform-
(3) The term "`Governor" means the Gov- and the efficiency and effectiveness of the services pro- Ing affected units of general purpose (C) a public or nonprofit private
emor of the State, In the'case of any of vided on a coordinated Isasis thereunder. local government of his plans for di• agency which is under the super•
tho fifty States, and,in the case of the (b) The Secretary may disseminate the results of viding the State into such areas and vision or direction for this pur-
:
Dilor States,the chief executive officer the evaluations,conducted pursuant to subsec• after affording them a reasonable oppor- pose of the designated Statetunity to comment upon those plans or agency and which can engage in
or officers thereof. tion (a) to interested agencies, organizations, to make recommendations for alterna-
the planning or provision of a
(4) The term "Secretary" means the Secre- and individuals. fives to those plans;
tart' of Health, Education, and Welfare. (c), The Se etary.cma provide, directly or broad range of human services
Secretary. Y P Y Y - within a service area,and
2 determine, after consideration of the
(S) The term "State" includes, in addition grt,such technical assistance as �' � views offered b agencies providing
may be necessary to assist a Governor,or any ; Y tt P g (2) must provide assurance,found adequate
to the fifty States, the District of public or nonprofit private agency, in the ' human services within each service area, by the .Governor, that it will have the
Columbia, Guam, Puerto Rica, the planning or operation of a program for the whether a local allied services plan (as ability: to develop a local allied services
Virgin Islands, American Samoa, and coordinatedrovision of services. described in subsection (c)) will be de- plan and :to.,carry out, directly or
the Trust Temtories of the Pacific, veloped for that area, and,if so,desig- through contractual or other arrange-
(d} In addition tofunds otherwiso available there- nate a local agency (which meets the
` , , merits,a:pragram pursuant it that plan
8 Y
(ti) The term"unit of general purpose local for, 'such' portion of any appropriation to requirements 'of subsection (b)) within within the service area,
government" means(A) a political sub- carry out,'this Act'as theSecretary may deter- each such service area to assume pri-
division of`the State whose authority is mine,'butnot'in 'excess,of I per centum mary responsibility for the development The Governor may designate an agency described In clauseI
broad and general and is.dbt limited to thereof,shall be avaoa'ble`to him to carry out ofFthe'local'plan and to assure its imple- (1)(C)of this subsection for a service area only if Ito finds
only one function or a cambin tion of subsection(a): mentation as a part of and in a manner that no office.or;agency.described;in clause(I)(A)or,(B)
1
In the Board of Supervisors
of
Contra Costa County, State of California
July 31 19 72
In the Matter of
Accepting Federal Grant for
Pre-Test of the Allied Services
Act of 1972•
This Board on May 16, 1972 having authorized the County
Welfare Director to submit an application to the United States
Department of Health, Education and Welfare for a grant of
approximately $111,000 for the project period October 1972 to
September 1973 to design a pre-test of the Allied Services Act of
1972 which sets forth the concept of integrated services in
connection with social programs; and
Mr. R. E. Jornlin, County Welfare Director, having
appeared before the Board this day and advised that aforesaid
application has been approved and having recommended that accept-
ance of the $111,000 federal grant, which requires no state or
county matching funds, be authorized by the Board;
On motion of Supervisor W. N. Boggess, seconded by
Supervisor A. M. Dias, IT IS BY THE BOARD ORDERED that the
recommendation of Mr. Jornlin is APPROVED.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. P. Kenny, A. M. Dias,
W. N. Boggess, E. A. Linscheid.
NOES: None.
ABSENT: Supervisor J. E. Moriarty.
I hereby certify that the foregoing is a true and correct copy of an order entered on the
minutes of said Board of Supervisors on the date aforesaid.
Witness my hand and the Seal of the Board of
cc : County Welfare Director Supervisors
County Medical Director affixed this 1st day of July 19 72
County Health Officer 01
County Probation Officer W. T. PAASCH, Clerk
County Counsel By _ p,,�,� , Deputy Clerk
County Personnel Director Deanna Petrie
County Administrator
Richmond Model Cities
N 74 1 1 171 1OM
i
�c.4JORNLIN
CTOR SOCIAL SERVICE DEPARTMENT CEI J�i D
CONTRA COSTA COUNTY 3 /Y7 .
W. PAASCH
MWORANDUM CL[R BOAK9 OF SUPERVISORS
ACOST
By _ O'Dwy
TO: Board of Supervisors
FROM: R. lin, Director, Human Services Agency DATE: July 28, 1972
SUBJECT: PRE T OF THE ALLIED SERVICES ACT OF 1972
On May 16, 1972, this Board authorized the Social Service Agency to apply through the
Department of Health, Education and Welfare (HEW) for a demonstration grant to pre-test
the Allied Services Act of 1972.
On July 17, 1972, HEW officially announced its approval of Contra Costa County's proposal
for a pre-test of the Allied Services Act. As the Board knows, this formal notification
followed a prior announcement made by Congressman Jerome Waldie. The federal Office of
Research and Demonstration grant of $111,000, which requires no state or county matching
funds, is intended for first year planning and development activities geared toward pre-
testing the Allied Services Act. The Act was introduced in Congress by the Nixon admin-
istration on May 18, 1972.
The Act is designed to coordinate and consolidate the fragmented and categorical service
delivery "nonsystems" which exist in states and localities. The largest of these is the
public welfare social services, but there are other programs with a substantial social
service component. Examples are: public education, public health, vocational rehabili-
tation, probation, law enforcement, the court system, mental health, and others. Not only
does this legislation aim to make the service programs more efficient in the utilization
of human and monetary resources, but it also aims to present to the recipient a coordinated
and comprehensive system which will serve his needs rather than frustrate them. This
legislation will offer to state and local political officials a greater opportunity to
package programs in a more effective manner given the particular needs of their juris-
diction. It addresses itself to the problem of putting together the various systems for
the benefit of individuals and families who have problems and need the services.
The Act creates several new authorities including the following:
1. The Secretary of HEW has the authority to underwrite the costs of state
and local planning for comprehensive service delivery.
2. Governors are able to designate local agencies to develop comprehensive
plans. Governmental agencies, voluntary organizations and recipients of
services are to be represented in the planning. The agency chosen will
usually be a local unit of general purpose government.
3. States and localities with approved plans can shift up to 25% of federal
funds between programs to fit local needs. '
GEN. 9
Board of Supervisors - 2 - July 28, 1972
4. The Secretary of HEW may waive technical or administrative requirements
which would otherwise impede integration, such as statewideness.
5. States can receive federal grants to meet start-up costs of administrative
consolidation.
Although the Act includes no new monies for services, states can apply for planning grants
and implementation grants. It is estimated by HEW that only 10-15 planning grants will be
given out the first year of operation, with the average grant ranging from $1.5 to $2 million.
A total of $20 million has been set aside in the fiscal year 1973 budget for these grants.
In addition, the integration of services and focus on community and family problems should
provide for more effective and efficient use of staff and resources from a variety of human
service agencies.
Planning grants will be limited to two years. Once the planning is accomplished, the local
government may apply for an implementation grant, which will also be limited in number.
First year implementation grants will be 100% federal funding. Renewal grants will be 750
federal and 25110- state. The criteria upon which the applications will be judged will include:
(1) the degree to which the plan promises to move people away from the conditions of depen-
dency to conditions of self-care and self-support, (2) the anticipated increase in the pro-
vision of services due to efficiencies created through implementation of the state plan,
(3) the services to be integrated in addition to those required in the legislation, (4) the
. importance of the services to be integrated, and (S) the number and percentage of state's
poor people covered by the plan.
The specific goal of the Contra Costa proposal is to design and prepare for operation a
delivery system of human services which will entail comprehensive integration of existing
systems in a network of services operated by governmental and private agencies. The system
will involve the maximum participation of community residents and all public and private
educational, social and health related agencies. At first, these activities will be con-
centrated in the Richmond Model Cities Neighborhood area. The program development, however,
will serve as a prototype throughout the county. The Richmond Model Cities Program has
worked closely with our staff in developing the proposal and will continue to provide
assistance and cooperation during the test period.
The selection of Contra Costa County to pre-test the Allied Services Act is concrete recog-
nition by federal authorities that human service programs developed and administered by
this county represent the direction human service programs will take in the future on a
national basis. Contra Costa County has pioneered this path of the future over the last
several years and has the capacity and now the opportunity to lead the nation toward a more
effective and efficient system of human services.
At this time, it is requested that the Board authorize the acceptance of these funds. The
Social Service Agency will then begin to implement the planning and development phase of
restructuring the human services programs in Contra Costa County to meet the goals and
objectives of the Allied Services Act.
REJ:lr
cc: J. P. McBrien, County Administrator
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R IN
e SOCIAL. SERVIC[ DEPARTMENT ME
��;1/�
C NIRA COSTA COUNTY 161 .
7WT. SCH
MEMORANDUM lJP>=RVtSORS
A
.._ V eputy
70: Board of Superv�i�or� �� �
FROM: R. E. J orn l i 11n��, Director, Socia l Service Agency DATE: May 16, 1972
SUBJECT: Application for Federal grant to provide funds to design a pre-test
of the Allied Services Act of 1972
I am pleased to report that the Department of Health, Education, and Welfare through its
central and regional offices has urged the Contra Costa County Social Service Agency to
submit an application for funds to design a pre-test of the Allied Services Act of 1972,
which the Board endorsed at the April It Board meeting. The staff of our Program
Planning and Development Section and our Case Management Consultant in cooperation with
the staff of the Richmond Model City Project have prepared the application which is
being submitted to you today for approval and forwarding to the Department of Health,
Education, and Welfare. We are assured by the Federal authorities that this application
will receive favorable consideration. The arant would be in the neighborhood of
$111 ,000 for the first year.
The Allied Services Act of 1972 which has been submitted to the Congress by the
Administration, is designed to bring about maximum comprehensive Integration of all
human services at the local level . The objectives of the proposed project during the
first year are to design, install and prepare for operation a system of human services
delivery which will entail comprehensive integration of existing systems operated by
governmental and voluntary agencies in a designated area within Contra Costa County.
The construction of a network of services related to the perceived needs of the resi-
dents of the test area will be accomplished through a variety of intra- and inter-
agency arrangements.. The system will entail maximum participation by all public and
private educational , social , and health related services in the area. it will include,
but not be limited to:
(1 ) The establishment of an organizational structure that involves citizens at
large, clients-patients, institutional and service agency personnel in a joint
planning, decision making process of human service programs development.
(2) The development of a comprehensive services system that responds to individ-
ualized needs as identified and specified by and with individual clients.
(3) The "coordination" and "integration" of services in such ways that the
services will result in achieving greater well-being among the people in
the area.
(4) The systematic identification, analysis and evaluation of needs and services
designed to meet the needs in ways which will improve the quantity, quality
and relevance of the services through a ,joint planning effort of residents
and agencies.
GEN-9
fl
Board of Supervisors -2- May 16, 1972
(5) The examination of existing institutional systems (Police, Education, Welfare,
etc.) and, as possible, work toward modifying them in order to achieve greater
well-being of people in the area.
(6) The improvement of the style and manner of services delivery so that they become
acceptable to consumers.
(7) The development of a case management system which will enable uniform identification
of problems of individuals and families and application of measurable and specific
items of service.
(8) The development of a recording and data collection system designed to measure
the effectiveness of the services provided in terms of both improved individual
well-being and accountability.
(9) The inclusion of strong resident and consumer participation in all phases of the
design, implementation and on-going evaluation of the service delivery system.
(10) The provision of meaningful employment within all parts of the service delivery
system for a significant number of community residents who are also consumers
of the services provided.
( 11 ) In succeeding years the continued testing, evaluation and adjustment of the
system to accomplish its goals.
(12) The exchange of information and ideas between all agencies providing human
services in the proposed services area.
Although the initial project area will be in that part of Richmond designated as the
target area of the Richmond Model City Project, the program is being designed so
that it may be placed in operation in other parts of the County as soon as feasible.
The encouragement given to the Contra Costa County Social Service Agency by the Depart-
ment of Health, Education and Welfare to file this application is one more indication
of their strong support of the efforts this County has been making to improve the
effectiveness and efficiency of its human services through comprehensive planning
and integration.
REJ :WS:bl1
i
OL
wond
Rick.
HENRY DISHROOM
DIRECTOR
/ TELEPF:ONE. 233-9923
F'
C A L I F 0 R N
RICHMOND MODEL CITIES?ROGRAM
661 SO.TENTH STREET
May 11, 1972
Mr. Robert E. Joralin, Director
Social Services Department
Administration Building
Martinez, California 94553
Dear Mr. Jornlin:
It gives me great pleasure to endorse the Human Services Delivery
System project en_itled "A Proposal to Design a. Human Services
Delivery System: A Pre-test of the Allied Services Act of 1972".
We have been work:_ng together for such a long time to try to get a
better delivery system for the residents cf the Model Neighborhood.:
Area. Individual services have certainly been expanded in the
Model Neighborhood in the last several years . The vehicle to
examine the whole- system and revise it as boldly as necessary to meet
the needs of the residents has been missing up until now. We
believe this project proposal provides that vehicle.
The Social Services Committee of the Model Neighborhood Citizens'
Board was involved in the original planning on inter-agency
coordination and improved services delivery from which this proposal
developed. This Committee has discussed the proposal several timer
and both the Committee and the full Board have endorsed the project
proposal.
Sincerely yours ,
Henry� ishroom
Director
AC:HD:j j
cc: Harry Kennedy Della Moreno
Lucy Ellison Kenneth Smith
Boaston Woodson
1
it
.CRTIFIGION OF D104 MODEL CITIS ...... ......a,P�,.SS
Richmond, California Social and •,�,
city arri state DHEW grant program
To Regional Director, EM:
WHEREAS the Department of Health, Education, and Welfare requires that
projects affecting the Model Neighborhood be linked to the Comprehensive
Demonstration Program; and
WHERF,AS Contra Cosgg. Co , the potential grantee agency, has presented
for cons_erati.on and appropriate certification a project proposal c:e-
scribed a.:5 follmis:
PROJECT TITLE: A Proposal to Design a Hunam Services Delivers S st.em: .
A Pre-test of the Allied Services Act of 1972an
SEAS the project proposal described above has been determined by me
to have met the follorAng conditions:
1. The project proposal:
(a) x is an element of the City's Comprehensive bemonstration
Nrogram; or
(b) X was developed for prig:ary impact in the model neighborhood;
or.
(c) — serves a large area but has a discernable impact in the
mo3el neighborhood, is consistent with and reinforces the
Comprehensive Demonstration Program, and will be incorporated
as an element of the Comprehensive Demonstration Program. in
the next CDP submission to HUD.
2. , The CLIA was informed about this project proposal on. November 1, 1971
date
and was given adequate opportunity to participate in its
development. opportunity.
3. The project proposal has had acceptable citizen participation in
its development and adequate citizen participation is assured in
the proposed plan of operation.
- 2 -
4. Adequate provision has been maie for continued coordination
Imitween the potential grantee :agency and the City Demonstra:A'.on
Agency during execution of the project.
5. Adequate provision has been made for monitoring and evaluation
of the project by the City Demonstration Agency as part of the
annual Comprehensive Demonstration Program submission and the
refunding of the project.
NOW, TJMF FORE, exercising the responsibility and autbority vested-in
no as Director of the City Demonstration Agency.and acting with they
kn(nrledEe -and concurrence of the chief_ executive official of my city,
I certify that the project proposal described above is adequately
linked to this Cityts Comprehensive D-=onstration Program.
May 11, 1972 ''
to Director
City Demonstration Agency
City of Richmond
CONCURRENCE OF REGIC•NAL DIRECTOR' . .
1972
date Regional Director, Region - IX
Department of -Health., Education,
and Welfare
OMB form
no. 85-80145
• • • . BUDGET BUREAU NO. a3RO250
APPROVAL EXP. 0/30/73
DEPARTMENT OF
HEALTH, EDUCATION AND Wl LFARE
SOCIAL AND REHABILITATION SERVICE
APPLICATION FOR PROJECT GRANT
1. ADMINISTRATIOY!OFFICE LEAVE BLANK
^'ADMINISTRATION ON AGING Q YOUTH DEVELOP!:EN7 5 SRS-PGN
SERVICES ADMINISTRATION DMINORATI PREVEhT10N
,__;.COMMUNITY AOMItt15TRAT10N DATE RECEIVED
'X'OFFICE OF RESEARCH AND D CMONSTRATIONS OFFICE OF MANPOWEr, REMARKS:
REHABILITATION SERVICES DEVELOPMENT a TRAIVING
ADMINISTRATION 0 OTHER -
^2. SRS PROGRAM:POPULAR NAMI.
3. TITLE OF PROJECT(Limit to.3 Typewriter Spaces)
Design of Pre-Test of the Allied Services Act of 1972
4. TYPE OF APPLICATION
(SRS Project Grant.1'0. )
'X NEW C]CONTINUATION [D RENEWAL E]REVISION [:]SUPPLEMENT
5. PROJECT INVOLVING HUMAN :UBJECTS
A. IX NO B. F]YES AP-ROVED:
C. I—]YES–PENDING REVIEW:
Date
6. MAJOR PROGRAM EMPHASIS 11. DATES t•F: FROM THROUGH TOT.L AMOUNT
A. PROJEC
Comarehensive Service Intearation PERIOD Q
7. PROGRAM DIRECTOR(Nome, Ti le,Department,and Address B. BUDGET
Street, City. State, and Zip Code: PERIOD _QC
+ 1 07
12. TYPE O=ORGANIZA—T:10—N�(Check applicabla item)
Robert E. Jornlin, )i rector PUBL C INSTITUTION:
Contra Costa County Social Service Dept. E]FE DERAL CI STATE W]LOCAL []O–HER
651 Pine Street
�. Martinez, California 94553 PRIV/.TE INSTITUTION: E]NONPROFIT- [ 3 PROFIT
SOCIAL SECURITY NO. I AREA CODE TELEPHONE NO. 13. ADORES WHERE MAJOR PORTION OF PROGRAM WILL BE
CONDU1:TED IF DIFFERENT FROM ITEM S.
S. APPLICANT ORGANIZATION (Nome,SponsorinaDept.,andAddress-
Street, City.State,and Zip Code) -
Contra Costa County Social Service Dept.
651 Pine Street
Martinez, California 94553
COUNTY CONGRESSIONAL DISTRICT COUNTY CONGRESSIONAL DISTRICT
Contra Costa
S. NAME, TITLE AND ADDRESS OF OFFICIAL AUTHORIZED TO 14. PAYEE(Specify to whom checks should be sent)
SIGN FOR APPLICANT ORGANIZATION (lame, Title, Full Address)
Robert E. Jornlin, Director Robert E. Jornlin, DirectorContra Costa Co., Social Service Dept.
Contra Costa County Social Service Dept. 651 Pine St. Martinez, Calif. 94553
651 Pine St. -Martinez, Calif. 94553
10. ORGANIZATION CURRENTLY ACCREDITED: For Continuation and Grants ONLY
15. HAVE ANY INVENTIONS BEEN CONCEIVED OR FIRST ACTUALLY
i_J YES CJ NO REDUCED TO PRACTICE IN THE COURSE OF THIS PROJECT?
IF YES. BY WHOM NO AYES,PREVIOUSLY REPORTED
YES. NOT PREVIOUSLY REPORTED(ATTACH LIST)
16. TERMS AND CONDITIONS. The undersigned accept,as to any grant awarded, the obligation to comply with:terms and conditions pertinent to the
awarding program,HEW Grant Regulations/Policies, and Other Federal Statutes and Fegulations relevont thereto,Title VI of the Civil Rights Act
of 1964(PL 88-352)and the Regulation issued pursuant thereto,and state that the to molly filed Assurance of Compliance with such Regulation
(Form HEW-441)applies to this project. The undersigned also certify that they have to commitments or obligations inconsistent with compliance
with the above.
17. SIGNATURES A. SICt T RE r PERSbN NA►�D'II4 ITEM D
(Signalutes required
on ori P.inni copy only.
(Iso ink, Per signatures B. Aµ�OVEO BY: SIGNATU OF S A r nGENC? OFFICIAL AT
not acceptable.)
TITL C:
FORM SR5 OFM 3 PAGE 1
y
18.WGET SUMMARY FOR PERIOD SHOWN tN ITEM ItB ,GE 1
(COMPLETE ITEMS 19 THRU 2S BEFORE THIS PAGE)
A, DIRECT EXPENSES OTH.:R THAN TRAINEE EXPENSES
(.
BUDGET CATEGORY FUNDS NDS(FEDERAL-
FUNDS
1. PERSONNEL (INCLUDE FRIN'JE BENEFITS)
66, 105
2. EQUIPIAENT
2,500
3. CONSUMABLE SUPPLIES
4. TRAVEL(STAFF)
4,000
S. CONSULTANT EXPENSES
20,000
6. OTHER EXPENSES 16,600
7.TOTAL DIRECT EXPENSES CTHER THAN TRAINEE EXPENSES $ 1 1 1 ,205
B. DIRECT TRAINEE EXPEgSES(COMPLETE SECTION B FOR TRt,INING GRANTS ONLY)
1.STIPENDS(INCLUDE OEPEN)ENCY ALLOWANCE)
2. TUITION AND FEES -
3. TRAVEL
4. TOTAL DIRECT TRAINEE E)PENSES $
C. TOTAL DIRECT COST (LINES A7 and 134)
111 ,205
D. INDIRECT COST EXPENSES: (B) DHEW NEGOTIATED AGREEMENT DATE
(A)IS INDIRECT COST REQUESTED:
l.__J tt0 E]YES
(Q) PERCENTAGE RATE: % (D) BASED ON: U SbW O TADC $
(E) BASE: S
E. GRAND TOTAL (TOTAL LINES, C AND D) % $ 1 If 205
F. TOTAL GRANTEE PARTICIPATION (OMIT FOR RESEARCH & $
DEMONSTRATION PROJECTS)
G. TOTAL PROJECT COST (TOTAL LINES, E AND F) (OMiT FOR RESEARCH joo $
& DEMONSTRATION PROJECTS)
PAGE 2
i
N
19. S(NED F PERSONNEL EXPESES FOR PER OD SHOWN EM 11B PAGE 1
A. PROFESSIONAL
PERCENTAGE FEDERAL
ANNUAL OF TIME OR
NAME TITLE SALARY EFFORTSPENT FUNDS
REQUESTED
ON PROJECT
(1) 121 (31 (4) (S)
Pro'ect Coordinator s 16,000 100 % 5 1:3,000
13,000 100 15,000
P mQ Q00 100 13,000
Ccmmunit�j Partici pati on
OCqani7nr
FRINGE BENEFITS(SEE INSTRUC'IONS) �:34 15
TOTAL PROFESSIONAL PERSONNEL EXPENSES S 57,915
B. OTHER PERSONNEL
• PERCENTAGE
ANNUAL OF TIME OR FEDERAL
J03 CLASSIFICATION SALARY EFFORT SPENT FUNDS
ON PROJECT REQUESTED
(tI (21 (3) (4)
Stenographer S 7,000 100 x 5 7 0
FRINGE BENEFITS(SEE INSTRUCTIONS) 1 , 190
TOTAL OTHER PERSONNEL S 8, 190
TOTAL ALL PERSONNEL (A + 8) (TRANSFER TO ITEM IB,A. LINE l) S 66, 105
EXPLANATION OF FRINGE BENEFIT CALCULATIONS:
A. PROFESSIONAL Soventeen percent
B. OTHER PERSONNEL Seventeen percent
PAGE 3
'1
20. SCHEDULE OF EQUIPMENT EXt EN5E5 �'
LIST INDIVIDUAL ITEMS OF EQUIPMENT AND T HEIR ACCESSORtES
THE APPLICANT CERTIFIES THAT: (1) the equipment listed below is not already on'•and and readily available for use by FEDERAL
project personnel,and (2) the applicar t employs on effective system of equipment utilizat on and management. FUNDS
REQ JESTED
ITEM(1) ill
Office furniture and equipment @ %500/1?erson S 2 `_00
AWL TOTAL EQUIPMENT EXPENSES (TFANSFER TO ITEM IS.A.LINE 21 S
FEDERAL
21. SCHEDULE OF CONSUMABLE SUPPLY EXPENSES FUNDS
LIST IN GROUPS REQUESTED
(11 (2)
Office supplies and materials 5 2,00
TOTAL CONSUMABLE SUPPLY EXPENSES(TRANSFER TO ITEM 18,A. LINE 31 S
000
PAGE 4
Amok
FCDERAL
22. SCHEDULE OF TRAVEL EXPENSES (STAF'") I UNDS
RECLESTED
tt) (2)
Staff travel s2,0-00
i1 Advisory Board travel and exnense 2,000
TOTAL TRAVEL EXPENSES (STAF') (TRANSFER TO ITEM IS.A. LINE 4) SIV,I)J
FEDERAL
23. SCHEDULE OF CONSULTANT EXPENSES FUNDS
RECUESTED
tU 12)
Job nrre f les i dents $r (
D Education, fh, J,IyE: i i e DF• etc.
r t)0
Evaluation 17es i gn l0 0()0
TOTAL CCU ULTANT EXPENSES (TRANSFER TO ITEM 18.A. LINE S) s20;000
FEDERAL
24. SCHEDULE OF OTHER EXPENSES FUNDS
LIST ALL OTHER EXPENSES CHARGEABLE TO THE PROJECT REQUESTED
(1) (2)
P . s 3,000
..xputr,r program de-sLan and machine time 00
•
TOTAL OTHER EXPENSES(TRANSFER TO ITEM IS.A. LINE 6) S l6,-)00
PAGE S
%I
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26. BUDGET ESTIMATES FOR TOTAL PROJECT PERIOD (MIT CENTS-
"HESE FIGURES DO NOT CONSTITUTE A COMM -MENT): TO BE COMPLETED
FOR NEW AND RENEWAL APPLICATIONS ONLY.
IST YEAR
• 2
DESCRIPTION SAME AS PAGE 2 2ND YEAR 3R.)YEAR 4TH YEAR "STH YEAR TOTAL
(1 l2) (3) (4) (S) (61
A DIRECT EXPENSES OTHR (Federal Funds Only)
THAM TRAINEE EXPENSES
1. PERSONNEL (SALARIES, FRINGE S S S S S S
BENEFITS, ETC.)
2. EQUIPMENT
3. CONSUMABLE SUPPLIES
4. TRAVEL(STAFF)
S. CONSULTANT EXPENSES
6. OTHER EXPENSES
7. TOTAL DIRECT EXPENSES OTHER S S S S S S
THAN TRAINEE EXPENSES
B. DIRECT TRAINEE EXPENSES (Federal Funds Only) (Applicable to Training Grant ONLY)
1. STIPENDS AND DEPENDENCY S S S S S S
ALLOWANCE
2. TUITION AND FEES
3. TRAVEL
• 4. TOTAL DIP.ECT TRAINEE
EXPENSES S S S S S S
C TOTAL DIRECT COST
(LINES A7 + 84) S S s s s S
D. INDIRECT COSTS (Fede al Funds Only)
% Is s s s IS- S
E, TOTAL PROJECT PERIOD ESTIMATES
(Totals of schedules(C+O) s s S s s s
F. GRANTEE FUNDS(including
both direct 8 indirect costs)
(Omit for Research and Demon-
stration Projects)
Dollars s s s s s s
Percent I z z z z z z
M REMARKS (justify continuing lends where the need mer be Apparent)
•
PAGE 7
r
THE FOLLOWING PERTAINS TOCURRENT BUDGET.THIS PAGE MUST BE'COM D WHEN REQUESTING,SUPPORI FOR
CONTINUATION AND RENEWAL GRITS ONLY
FROM THROUGH
27. FISC:L DATA FOR CURRENT BUDGET PERIOD
JTc'TAL FEDERAL GRANT FUNDS ONLY)
•
A. CURRENT BUDGET $
B. ACTUAL EXPENDITURES
THROUGH $ ,
(Insert Dal..)
C. ESTIMATED ADDITIONAL
EXPENDITURES FOR REMAINDER
OF CURRENT BUDGET PERIOD $
D. TOTAL ESTIMATED
EXPENDITURES $
E. ESTIMATED UNEXPEADED
FUNDS
USE SPACE BELOW TO EXPLAIN ANY SIGNIFICANT AMOUNT SHOWN IN ITEM E.
PAGE 8
28• EXPIANAT<ON AN TIFICATION BY BUDGET CATEGORIES'AS LISTIM SCNEDut.ES 03` T14RU 251
tSEE Ms—rRUCTI0+15!
a
�i
PAGE 4
x
J�(�r
r
• 29. OTHER SUPPORT
INSTRUCTIONS: A. LIST ALL FAS SPONSORED PROGRAMS RELATING TO THE 14AJOR PROGRAM EMPHASIS OF THIS APPLICATION(SEE
ITEM 6. PAGE 1)AT THE APPLICANT INSTITUTION INCLUDING THOSE NOW BEING CONSIDERED BY SRS. :%LSO TO BE
.
INCLUDED UNDER ITEM A ARE CURRENT OR PENDING CC•ITRACTS. RESEARCH GRANTS AND FELLOWSHIP AWARDS
WHICH ARE RELATED TO THIS PROGRfM. USE CONTINUATION PAGES IF NECESSARY.AND FOLLOW THE SAME
FORMAT.
B. IN ITEM B. LIST ALL OTHER SOURCES OF SUPPORT RELATED TO THIS PROJECT WHETHER FEDERAL.SATE OR
OTHER.
A. SOCIAL AND REHABILITATION SERVICE SUPPORT
PROJECT TOT-iL
NUMBER SPONSORING TITLE OF PROJECT OR PRCGRAM TOTAL PERIOD OF
(il designated) AGENCY AMOUNT SUPFORT
WITH DATES
(1) ACTIVE OR APPROVED
II-P-57098/9-31 Social Health Care Outreach s209,003 July 1972-June 197
ervice Dept.
1
(2) APPLICATIONS PENDIN3 DECISION
B. ALL OTHER SUPPOR
PROJECT TOTAL
NUMBER SOURCE OF TITLE OF PROJECT OR PROGRAM TOTAL PERIOD OF
(!l designated) FUNDS AMOUNT SUPPORT i
WITH CATES
(1) ACTIVE OR APPROVED
S
I
i
i
(2) APPLICATIONS PENDIK3 DECISION
PAGE 10
Adlhk
30. BIOGRAPHICAL SKETCH
(GIVE THE FOLLOWING It FORMATION FOR EACH PROFESSIONAL STAFF MEMBER, BEGINNING WITH THE PROGRAM DIRECTOR.1
(FOR CONTINUATION AND RENEWAL APPLICATIONS,SEE INSTRUCTIONS)
A. NAME(Last,First,Initial) B.TITLE. C.BIRTHDATE(Afo.,.Day, Year>
D. PLACE OF BIRTH(City,State, Country) E.PRESENT NATIONALITY (If non-U.& F.SOCIAL SECURITY NO.
citizen,Indicate visa s)m_uJ)
G. RELATIONSHIP TO PROPOSED PROGRAM
H, EDUCATION(Begin aidr baccalaureate frainin;and Include poatdoctorsQ
ORGANIZ-TION AND LOCATION DEGREE YEAR CISCIPLINE
(I) (2) CONFERRED (4)
131
I. PROFESSIONAL EMPLOYMENT'Start with present position)
�1
J. PROFESSIONAL EXPERIENCE(List significant experience relevant to program)
a
• PAGEII
i1
31. RELATIONSHIP TO STATE PROGRAMS
A. Is the agency or institution submitting this application operated, supported, or supervised byan
official State agency? ................................................................ Q YES NO
IF "YES."-1. WHAT IS TII;STATE AGENCY? Ca 1 i fern i a State hoartmen t' of Snc j_a l Welfare
2. WHAT IS TIDE APPLICANT'S RELATIONSHIP TO IT? Coun'y Social Service 11ppa rtment
3. IS THE STA--£AGENCY AWARE THAT THIS APPLICATION F)R FEDERAL FUNDS
IS BEING M?.OE? .... .............. ............. ® YES NO
COMMENTS:
B.' Is there a State agency (other than the one named in A above) whose program is functioning
in the some area or in an area related to your proposal?................................... YES. [] No
IF "YES."- 1. WHAT IS THE STATE AGENCY? See be IOW
2. IS THIS AGENCY AWARE OF THE PROPOSED PROJECT?............................. EXI YES NO
COMMENTS:
Department of Education Department of Human Resources Developmen�
• Department of Publ c Health
Department of Mental Hygiene
Department of Correction
Department of Rehabilitation
C. What will be the relationship of this project to current or proposed official State or local programs and plans?
Project intended to accomplish maximum integration of all human services
D. If applicable, did the appropriate Clearinghouses make any comments concerning this
application?......................._................................................. El YES F NO
If "YES", please ottach comments
• PAGE 12
�1
Adbk-
FOR CONTINUATION..NO RLWAL APPLICATION.USE ONLY PERIOLIWERED BY THIS REPORT
32. SUMIIARY PROGRESS REPORT FROM THROUGH
PROGRAM DIRECTOR(Last,First,Initial)
NAME OF ORGANIZATION
TITLE OF PROJECT(Repast litlo shown in Ifem 3 an Pago I)
DESCRIBE ACCOMPLISHMENTS SINCE LAST SUMMARY PROGRESS REPORT. FOLr_OWING THE FORMAT OF INITIAL APPLICATION.DETAIL
PROGRESS TOWARD ORIGINAL OBJECTIVES.
h
PAGE SS
y,
DEPARTMENT OF
L
Pro
pored for the Science
&EALTH, EDUCATION, AND WELFARE • PROJCaT Na.(Leavo Psnk)
Inlormatron Exchange. SOCIAL AND REHABILITATION SERVICE
Not for publication or publi-
cation reference. 33. PROJECT SUMMARY
• SUBMITTED TO: SOCIAL AND REEABILITATION SERVICE.WASHINGTON,D.C. 202(1
TITLE OF PROJECT
Design of Pre-Test of the Allied Services Act of IS72
GIVE NAMES AND OFFICIAL TITLHS OF THE PROJECT DIRECTOR, AND ALL OTHER PROFESSIONAL PERSONNEL
Robert E. Jornlin, Director
It AME AND ADDRESS OF APPLICANT AGENCY OR ORGANIZATION
Contra Costa County Social Service Department
SUMMARY OF PROPOSED WORK—200 words or less—omit confidential dates
In the Science Information Exchang•, summaries of work in progress are exchanged with government and private agencies supporting reseorclin
the sciences and oto forwarded to is vostigators who request such information.Your sutrnary is to be used for those purposes.
To reorganize the service system to insure maximurl coordination between all elenents
in order to facilitate consumer access to and use of the services, improve the:
• effectiveness of the services, insure accountability, use service resources
efficiently, and to assure maximum participation of the community in the identifica-
tion of needs and continuing evaluation of the service delivery system.
AGENC l SIGNATURE OF
ORT� •• t �'. PROJECT �'-Z—
ORGANIZATION DIRECTO
~ DO NOT USE THIS SPACE
•
PAGE 14
34, PROJECT GRANT COST SHARING PROPOSAL
(RETURN TWO COPIES)
1. NAME OF DHEW GRANTINGAGE?CY 2. DHEW AGENCY GRANT NUMBER
3. ADDRESS OF APPLICANT ORGA'4IZATION 4. PROJECT PERIOD °)
FROM THROUGH
S.TITLE OF PROJECT:
s. proposes to share in the
(fame of Applicant Organization)
cost of this project during the project period specified above(or ony.subsequent revision of that project period) to the
minimum extent of percent of the total allowaWa costs of the project.(b) It is understood that
if the project period consists of more than one budget period, this minimu�n percentage will apply to the project peritA as
• a whole, but not necessarily to each budget period; however, at least some sharing of costs will take place in each
budget period.
7. SIGNATURE AND TITLE OF AUTHORIZED GRANTEE OFFICIAL DATE
(a) The project period includes the initial budget period and the budget period(s)of any non-competing continuation grant(s),
(b) Total allowable costs of the project Includes both costs charged to the Federal grani funds and costs contributed by the grantee organization,and
will be determined in accordance with the cost principles designoted by the granting agency.
PAGE 1S
•
II;
�J
May S, 1972
A PRO?OSAL TO DESIGN A HUMAN SERVICES DELIVER'( SYSTEM:
• A PRE-TEST OF THE ALLIED SERVICES ACT OF 1972
A. Introduction
I . Objective
To achieve maximum personal independence, dignity, protection, economic serf-
sufficiency and physical , social and mental veil-being of individuals and families
through the establishment of an effective Human Services Program.
To organize the provision of human services to Individuals and families to assist
them in attaining maximum personal independerce and economic self-sufficie,lcy
feasible, or to prevent individuals and families from becoming increasing(,.,
dependent for beth financial support and personal care upon public and
private programs.
To reorganize tie service system to insure maximum coordination between at :
• elements in ord:r to facilitate consumer accs:ss to and use of the services;
improve the effectiveness of the services, insure accountability, use service
resources efficiently, and to assure maximum participation of the communitt
inthe identification of needs and continuing evaluation of the service
delivery system.
2. Background
The Contra Costa County Social Service Agency and other county agencies already
are heavily involved in providing services in the area through a variety of
contractual arrangements with the City of Richmond and demonstration projects
developed in cooperation with the Model City structure. The United Bay Area
Crusade has adopted a policy of encouraging its member agencies to explore ways
of expanding services through purchase of service agreements with the Sociii
• Service Agency and has designated Richmond as a target area for this efforF.
The Richmond Unified School District which scarves the entire area
has expressed interest in both broadening ani intensifying its
-2-
Involvement in the total service delivery system in the community.
There are several community based service agencies with substantial
experience in providing direct services in close cooperation with the
Social Service Agency and the Model City Project.
As the foil-Dwing list shows, Contra Cost-cr County has expressed through.
Board of Su.)ervisors Resolution and Administrative action a strong ant. :
continuing interest in developing an integrated human service delivery
system.
1965 - Centra Costa County health and welfare agencies begin develop-
ing methods of delivering a cooprehen'sive range of human
st:rvi ces.
• 1966 - Rodeo Community Service Center opened - first concrete test
o� services integration including Public Health, Mental
H3aith, Probation and Social Service. Immediately inaugurated
oimplete separation of income maintenance from Social Services.
1968 - Richmond Model Cities Program established. County Inter-
Agency Committee established and systematic development of
integrated services for MNA residents begun. County Social
' Service Department assigns full-time planner to Model Cities
staff.
1969-71 - Three Joint Model Cities-County Social Service Department
projects implemented: Child Care Development, Health Planning
Grogram Development) team, Health Care Outreach. Eight other
projects developed and implemented with Social Service
Depart-want participation.
-3-
• July 1970 - Creation of the Social Program Planning and Development Section
r0sponsible to the Director of the Social Service Agency and
with a major charge to advance -the planning for comprehensive;
irteragency service integration.
Nov. 1971 - Reorganization by Board of Supervisors of County Departments -
of Public Health, Medical and Mental Health Services, and
Social Services, into a single Social Service Agency headed
by the former Director of the Sicial Service Department who
has given strong support to all service integration efforts.
At present thc: Social Service Agency planni<.Ig staff consists of a directcr
and five full--time planners. The section combines a broad range of
experience in community planning, social pr3blem assessment, public and
• voluntary agency administration, and program monitoring and evaluation.
It carries responsibility for liaison with '4odel Cities projects within
the County and is responsible for the development of inter-agency agreements
and development of purchase of service agreements.
In addition, the Agency has three full-time staff assigned to planning,
developing, and coordinating services for the elderly, the retarded, and
day care. A full-time staff member is developing case assessment, manage-
ment, and recording methods related to the concept of service integration.
The Agency has direct administrative control over County medical (hospital
and clinics), Mental Health, Public Health, and Social Service activities
including public assistance. It has a strcng commitment to the provision
• of services as a means of reducing dependeicy and increasing personal
functioning and satisfaction. The Richmonc Model City Project is
• • -4- •
recognized as one of the most outstanding In the country. It has developece a
sophisticated s•-aff strongly committed to the concept of service integration
and to building its demonstration projects into the existing systems. It
has an experienced organization of residents .rho are involved in all of its
planning and operational activities.
The Richmond Model Cities Project and the Social Service Agency have had
a productive partnership of joint project development and sponsorship.
Model Cities has also developed a cooperative planning and project imple-
mentation with Kealth and Medical Services DEDartment - now consolidated with
Contra Costa COLnty Social Services - and wit? the Richmond Unified School
District and Contra Costa Junior College.
• All Model Citie!. plans based on Program Component Committees (Task Force)
develop-ment - with committees including MNA residents and appropriate agency as well
as Model Cities staff.
1 . Services Integration Proposal Endorsed by Committee and by Model Neighbor-
hood Citizens' Board Last Month:
2. Model Cities Projects Involving Health, Education or Welaare Funds:
Project names given, "Integration" aspects or special services aspects
noted.
3. Comprehensive Child Care Project: Funded jointly by Model Cities and
Social Service Department using Title IV-A. Links child care to health,
housing and career education, also family day care homes can become
modest self-supporting economic enterprises.
4. Health Care Outreach: Funded by Social Service Department with Title lJ-A
• and "1115" funds. Initiated by Model Cities. Provides outreach, trans-
portation and health education services t� MNA residents, provides
I�
i -5
• better information on service needs especially in health area:
5. Home Management Demonstration: Training, o)unseling and case work service,
housing problems - HEW funded through State of California Department of
Community Development.
6. Allied Health Professions Training Center Feasibility Study: Initiated
by Model Cities funded by Regional Medical Programs and Model Cities.
7. Rodent Control : Richmond MNA one of three sites for BAHA Rodent Control
Program. '
S. Drug TreatmenT (Discovery House): Model Cities support to Mental Health,
California Cocncil on Criminal Justice funeed drug treatment project.
9. Career Opportunities Program: Model Cities and Office of Education funding
of Richmond Unified School District project.
10. Child Diagnostic and Treatment Center: Initiated by Model Cities Program and
funded by SRS Rehabilitation funds is opereting in four elementary schoois to
prevent functional retardation through teacher and parent guidance.
11 . Youth Services Program and Youth House: Multi-funded project involving
Probation Department with Model Cities and Police Department support
HEW Juvenile Division and California Council on Criminal Justice, Model
Cities and County funds.
12. Service Activities at City Neighborhood Centers: Increasing numbers of
services called for and delivered at neighborhood centers - in area of
social services, health, special juvenile delinquency counseling, food
stamps, etc.
Model Cities is spending substantial sums as local share for new and
attractive centers. City Recreation Department operates and coordinates these
services.
• -6-
• Among program:. operating now or soon at Shields are Family Planning, Youih
Counseling, WtAl Baby, Health Care Outreach, Food Stamps, Alcoholism.
City Relationships to Service Integration:
Elected City officials are aware of services sponsored by Model Cities
and others funded by Social Services and using Clty facilities
and Model Cities funds - through Model Cities plan, contracts which come before
them - and through personal interest, especially Councilman Gary Fernandez.
Richmond is just gritting into a Community Development Office set up to carry
out physical (most;y HUD financed) projects on team basis. OEDP Committee is
the team for econoriic development.
Tentative Plan for a "Cabinet" relationship be-K-een County Social Service,
Richmond Unified School District and Assistant City Manager for Community Develop-
ment already proposed in Annual Arrangements Document. This proposal is under
study now.
City involved in redesign of police services toward "diversion" - cooperatively
with community social services, probation and other agencies,
Recreation Department also is very interested in cooperative relationship.
Hope that with the Allied Services Plan Richmond will soon have: '
(1 ) Staffed fully operating Community Development Organization,
(2) Comparable Social Planning Capacity,
and with that, will be able to handle new kinds of services and
facilities to house themisuitable to residents, and planned and
operated with residents.
•
i -7- •
3. Rationale
The underlying assumptions and concepts of tte Allied Services Act of 1972- are
• that human services can be made more effective through the development of a
coherent delivery system out of a conglomerate non-system.
Contra Costa fields the position that service programs must be defined in terms
of clients ratf'•er than agencies In order to. meet the differential needs o"
people and to measure the impact of services on the individual or a client
group. Consumir participation in program planning, decision making, operation
and evaluation is necessary (essential ); -however community participation itself
is not a sufficient condition to insure relei%ant nor effective services.
Agencies must b3 sensitive, flexible, and willing to make policy and structural
changes. If adancies and consumer groups car fulfi-11 this partnership, the
project may accomplish its goal . Rationale for specific project objectives
Include:
°reduction of consumer alienation and sense of powerlessness
*increased relevancy of services
*increased accuracy of problem assessmer+t
*humanization of the service delivery system
°prompt and efficient service delivery
The central concepts of the allied services approach may be described as
follows:
(1) Flexible Federal funding through provision for transfers between
programs in order to be more responsive to the variation in
local priorities.
(2) Removal of certain Federal constraints rhich impede integrated
services delivery, through provision of waivers.
• (3) instituticnai change and reforms are ext,ected to create more prompt
u
and easier access of clients Into delivery systems, i .e., increased
• responsive=ness of service programs to minorities with cultural and
language barriers.
(4) Integrati•in of services in order to enhance the utilization and
effectiveness of several services made available to an individual
or family, I .e., coordination as opposed to dispersion, competition,
duplication.
(5) Joint planning and decision making, a necessary component to allow
HEW services to "pull-together" and collaborate with relevant
voluntary services.
(6) Informatic-n, communication, and agency linkage,. this becomes the
heart of ,-he administrative-coordinating mechanism which brings
about the ultimate outcome of the allies services approach. The
• means of external and internal communication is essential because
of the voluntary effort required of bods public and private agencies.
(7) Horizontal organization structure as a preferred mechanism for
service delivery contrasted with the vertical bureaucratic line of
order organization. The more horizontal the organizational structure,
the more open it is for feedback from the people served. Institutional
responsiveness Is increased.
(8) Community need assessment, this notion extends beyond the inventory
of unmet needs--because of limited resources, priority setting must
follow need or problem identification. Furthermore, the delivery
system must be kept open to receive continuing information on
service gaps and delivery problems.
(9) Accountability, monitoring, and evaluation which implies a
• continuous process of evaluation of "what gets done" -- or outcome.
No longer do we wait for the end of the controlled demonstration
I 1
• -9- • '
• for all of oar service experiments. In this kind of project, where
a systems approach is indicated, the feedback should be continuous.
Otherwise, the system has no basis for correction or adaptation.
Evaluation is on systems performance as wall as client and community
change.
B. Specific aims
To design, install and prepare for operation a system of human services delivery ,
which will entail comprehensive integration of existing systems operated by
governmental and-voluntary agencies in a designatec area within Contra Costa
County. The construc--ion will be accomplished thrcugh a variety of intra- and
inter-agency arrangements of a network of services related to the perceived
needs of the resident:; of the test area. The system will entail maximum partici•-
pation by all public and private educational , social, and health related service!;
In the area. It will include, but not be limited, to:
( 1 ) The establishment of an organizational structure that involves citizens at
large, clients-patients, institutional - and service agency personnel in a
joint planning, decision making administration and evaluation process of
human service programs.
(2) The development of a comprehensive services system that responds to in-
dividualized needs as Identified and specified by and with individual
clients.
(3) The "coordination" and integration" of services in such ways that the
services will result in achieving greater well-being among the people
In the area.
(4) Systematic identification, analysis and evaluation of needs and services
• designed to mesh the needs in ways which will improve the quantity,
-10-
quality and relevance of the services through a ,joint planning effort of
• residents and agencies. (See A).
(5) Examine existing institutional systems (Police, Education; Welfare, etc.) -and,
as possible, work toward modifying them in order to achieve greater well-
being of people in the area.
(6) Improve the style and manner of services delivery so that they become.
acceptable to consumers.
(7) The developmen• .of a case management system vhich will enable uniform
identification of problems of individuals and families and application of
measurable and specific items of service.
(8) The development of a recording and data collection system designed to
measure the effectiveness of the services prcvided -In terms of both improved
individual well-being and accountability.
• (9) The inclusion of strong resident and consumer- participation in all phases
of the design, implementation and on-going evaluation of the service
delivery system.
(10) The provision of meaningful employment within all parts of the service
delivery system- for a significant number of community residents who are
- also consumers of the services provided.
(11 ) in succeeding years the continued testing, evaluation and adjustment of
the system to accomplish its goals.
(12) Exchange of information and ideas between all agencies providing human
services in the proposed services area.
C. Methods
The proposed area comprises census tracts 65 (i .e. , 3650), 76, 77, 78, 79, 80.
This is essentially the portion of the City of Rl :hmond west of the Southern
Pacific Railroad tracks. in addition, the area iicludes the unincorporated
part of North Richmond. These 6 tracts also contain the Richmond Model Neighbor-
• hood Area, though only an insignificant portion of it Is in tract 78; The re-
maining five tracts ,are among the six poorest In the City of Richmond with a
median income of $6930 according to the 1970 Census as compared with a Richmond
median of $10360. their total population of 26,937 people is 76% black and 9%
Spanish American. While the unemployment rate for Richmond in 1970 was 7.4%,
it was 12.7% in these 5 tracts, where a 7% lower labor force participation
rate than Richmond probably indicates an even worse unemployment picture.
Tract 78 (Point Richrond) is a natural part of ,the proposed Services lntegratioi •
Project area, as it lies isolated on the western side of the other five tracts.
It has a mixed population of poor and well-to-do; only two other tracts outsido
the MNA have a larger percentage of families below: the poverty level ($3000),
thought its median income is above the city-wide zverage.
• Initially the model Nhich we envisage will encompass a broad organizational net-
work, but will require physical facilities only for a small administrative staf4J,
meeting rooms, and data processing facilities for the central Information and
data resource pool . The progressive stages for the development of the service
system are described in the following chart. The Project Administration will
include the Director of the Social Service Agency, the Richmond Model Cities
Program and other appropriate city and county officials. These will be advisory
groups including agency staff, consumers and interested citizens.
•
i
_12-
UNIFYING
!2-UNIFYING BOARD OR ADVIS)RY COUNCIL
�I r i I
MEDICAL
SERVICES MODEL
PUBLIC HOSPITALS CITIES
HEALTH CLINICS
PUBLIC r
WELFARE
SCHOOLS PROBATION
CONTRACT
SERVICES
VOCATIO4AL SOCIAL ' STATE
REHABILITITION SECURITY MENTAL
.HYGIENE
D 0 L VOLUNTARY OTHER
EMPLOYMENT AGENCIES
WIN-- -
Progressive stages of the scope of the service providers is
indicated by (I) (2) (3) phases of enlisting service agency
participation.
i
l
-13-
The system is to be Designed so as to provide all services to help solve all
• "official problems".
An improved system of defining service needs in relation to the problems to be
addressed, quantitative measure of need, and resources available will be developed.
Various alternative nethods of service delivery will be considered and those
appropriate implemerted so that the suitability of different styles of delivery
can be tested.
Steps include:
( 1 ) Classification of Problems
(2) Analysis of Prolems:
(a) what services are intended to solve problem
(b) how many .people, where, have problems (and other measures of
. .client need)
(3) Analysis of existing services in relation to relevance, availability,
adequacy and acceptability.
(4) Development of service Network to Improve existing service and to add
new services. Change in delivery location or delivery patterns might be
used to improve existing service.
(5) Implementation of new and improved services
(a) development of individual project designation or work programs,
including job description, resident employment goals, consumer
involvement in planning and monitoring
(b) contract writing, if needed
(c) establishment of Project Implementation Machinery (to include space
acquisition, supplies, hiring, technical assistance and other
• needed hot.sekeeping procedures)
'Service delivery planning is to be action orientec; that is, designed to make
• available new or reo-ganized services for which a need has been identified in
Step I as quickly as possible.
For this purpose, existing services will be categorized in relation to the
"official problems" they are designed to meet. Ir this way, the service design
relates specifically to problem identification.
1 . Computer based central information depository or data bank -- development
and installation.
Since a wide range of human service agencies will be mobilized to provide
integrated, goal -directed services to a selected target population, the
following elemen�s are essential to the design of data collection system.
Individual confiJentiality will be assured anc the data will be used only
in relation to tris program and for the improvement of services.
• A. The data ban-, to contain essential demog riphic and census tract
materials, selected operational information from the participating
agencies, other relevant data from varied resources (national ,
state, local ).
B. The collection, organization, manipulation and operational use of
these materials will provide the pre-test project with data needed
at various time points. During the planning phase it can provide
basic decision-making data for identification and Inventory accumu-
lation of community problems, determination of unmet service needs
in the target community, selective data for defining the target
population, program priority direction, etc. During the operational
phase it will supply Information needed for modification of program
design, and identify service gaps or delivery problems. It will
• also supply material needed for management' and control purposes in
i�
I
. -15- .
the on-goinc operations. At the time of evaluation this data storage end
• retrieval system will be used as the basic; for evaluation of program im-
pact on the target goals.
C. Full utilizetion of the data bank will ma-<e it possible to identify and
classify the test population in depth by family, individual and groups
in relation to basic community problem categories, specified service
goals, and evaluation of service effectiveness.
D. It will provide the participating service agencies with a readily
available source of data and would be maiitained on a current basis.
E. The emphasis. would be on analysis of the data and application to the
on-going operational activity, rather thaEi on collection.
11 . Integrated Service Delivery System involving ill participating agencies --
Development and installation. The system is to have the following elements:
. A. Problem Identification
Services are to be focused on a limited selection of broad, basic
community problem areas about which the community has.concern and
for which tte participating agencies have a specified responsibility.
The selection of the problem areas for service focus is a priority
item if the objectives of the project are to be met.
B. Defined Goals
Service efforts directed toward broad goals that are, at the same
time, defined and limited, i .e., to maximize self-sufficiency, self-
care, and protection for those incapable of self care,
C. Inventory of Services
Identificat;on of all services to be provided by the involved agencies
and an appr•isal of their relevance to the project. This would include
• the elimina-•ion of duplicated service delivery patterns and a clarificF.tion
of functional responsibilities between the agencies.
-16- •
D. Multi-Service Delivery `
Consideratior of the utilization of a wide spectrum of the types
of service delivery to be provided. Outreach, community and ,
Neighborhood organization and participation, advocacy, ombudsman-
ship, indiviauai and family counseling, grDup services, etc.
E. Uniformity of Approach
The establishment of uniform goals for all participating agencies,
as well as metthods and procedures involving record keeping. This
component of service approach uniformity aid reporting makes it
possible for the project to measure servico effectiveness against
a mutually stared and equivalent set of st;%ndards. While the in-
dividual agencies would retain their unique service identity and
basic functic•nai responsibilities, they would all share the same
common goals and utilize an integrated reporting system.
F. Selection of the target population is to bo made by making an
Inventory of the basic problems in the test area service population,
then determiring the commonality and impact of these problems on the
community. Criteria are to be designed to serve as the basis for
selection of the actual service target group. The resources of the
data bank to be utilized for selection.
G. Monitoring and Control
On-going review and monitoring is to be instituted as a prior=ity
activity. This process will maintain the integrity of the project
design, assure that defined goals of service are being met, uniform
procedures and record keeping standards followed. A control system
to assist agencies in the management of thair service activities is
also required.
i�
_17-
H.
17.H. Evaluation cf Service Effectiveness and Accountability
Provide the agencies and the project with an evaluative design for
service accountability that is simple in its operation, uniform in
design and objective in its direction. E-aluation on the operational
level will he qualitative for the worker and statistical for the
project's needs. Evaluation is to be bassd on defined goal or objectives,
time controlled service activity, the selection of controllable perfor-
mance and service effectiveness expectations, Evaluation would not be
limited to the narrow confines of specific service actions, but would
encompass uss of the data bank materials to assess impact on a broader
base - for example, the possible impact o housing referral services .
on a given aroup in relation to the number of families in standard
housing in the same group at a later poin.- in time,
The methods and procedures to be designed for use by the project will
focus primarily on capturing defined accountability factors, In
general they will be based on the case management system already
developed by the Contra Costa County Social Service Department. The
present system will require expansion and modification in order to
meet the more sophisticated requirements of the project. The actual
service delivery approach of the Social Service Department system has
the following characteristics:
I . Short term service
2. Defined goals and objectives
3. Defined service programs (an inventory)
4. - Service focused on realistic, concrete, current problem
solving
r
5. Selfzction of problems for soluticn that offered a chance
• for modification, amelioration or solution
6. Time: Limit set for Service Activity - related to goal
achievement
7. The Contract Concept - client participation emphasized
8. Evaluation by worker of whether ,goals were or were not achieved
Proposed project time schedule. The project would begin three months
after the funds are granted and would complete the design for an opera-
tional pre-tost of the Allied Services Act of 1972 by the fourth calendex
quarter following. Some elements of the design might become operationa►
on a phase-ir basis during the design period. In addition, it would have
arranged with an acceptable outside firm for the-design of an evaluation
system to meesure the achievement of the ypais of the design period, anc
a system to to installed in the operational phase to provide continuous
feedback of effectiveness. This will permit early and prompt corrective
action as ineicated.
An effort woiid be made to describe the project director position and
hire the director prior to the first quarter.
First Quarter, October
-Establish guiding and advisory body
-Describe and 'recrult staff
-Select Project headquarters in Richmond
-Identify component agencies and service organizations
-Begin development of cooperationai agreements
-Descrite objectives in close conjunction with advisory body, staff,
and cooperating agencies.
• -Develop mechanisms for community input
�I
i -19- •
-Start -ho design the Data Bank. Emphasis on its purpose, expecta-.
• tions, responsibility, staff required and type, operational
pattern, 'relationships with participating agencies, etc.
-Tentative design of instruments, manuals, code books and
recording formats to be used by operational staff.
-Preliminary consideration of basic community problems) to be
selected for service focus.
-Preliminary consideration of need to determine target population .
to be served.
-Preliminary consideration of goals, expectations and evaluation
patterns.
-Monitoring, review and control comp-ments. to be considered.
Second Quar--er, January
• -Initial establishment of Data Bank complex. Staff orientation.
Clarification of purpose of information. Preliminary collection
of resource data. Consideration of data to be generated by
operating agencies.
Develop description of Allied Services Area Director position.
-Negotiate contract for ongoing operation evaluation.
-Description and analysis of problems to be dealt with,
-Description and analysis of service capabilities of all
component agencies and service groups.
-Initiate definition of goals in relation to Federal guidelines.
Third Quarter, April
-Complete definition of system incliding service components,
participants, etc.
• -Establish intra- and inter-system linkages through administra-
tive agreement, contract, or other appropriate methods.
I -20-
• -Describe In-service training requirements to support application
fbr shirt range training grant.
-Prepare second year project application,
-Hire Allied Services Area Director.
-Beain identifying other geographica: areas for next phase of
installation of system.
The monitoring and evaluation plan will to built into the proposal as an
ongoing, feedback process so that the new organization structure can make
corrections and necessary adaptations.
As a projection, the monitoring and evaluation may Include:
( I ) Systems performance objectives and criteria for evaluation.
(2) Community and client impact measures---satisfaction, attitudes,
• interest, support.
(3) Program component evaluation, objectives formulated, and
criteria defined for use in evaluation.
Fourth Quarter, July
-Complete and submit Allied Services Proposal by requested date
with necessary approvals and revisions.
-Perform additional survey and development work including
establishing linkages to regional , specialized services.
-Establish staff and procedures for on-going operation.
-Adapt advisory organizations to operational status.
-Develop and test service delivery systems and procedures
already tested.
• -Assign planning staff to areas selected for next phase of
installation of system.
I�
F'
-21- i
• -other transitional operations.
D. Significance
To field tet under controlled conditions and with sophisticated data collections,
evaluation, and service effectiveness measurements the impact of a comprehensivE.
integrated human services system including public and private agencies providing
health, education and social services.
Services can be delivered in many ways -- centralized in location but not com-
bined together; neighborhood based but not combinet. Delivery door-to-door can
be in separate places for separate services as speciality shops or under one ( 1 )
roof as in the depariment store.
While accessibility znd availability are closely slated to geographic distribu-
tion of services, there is no one location pattern'of delivering services that
ihas been clearly proved to be superior nor one way that Is suitable to all clients.
In developing the ne"work of services, each part of the process will be to identify
for given need -- different service delivery patterns, hypothesize the advantages
of each, develop delivery systems accordingly and evaluate their success in
meeting goals.
E. Facilities Available
The network of services visualized for the Richmond area will have its admini-
strative headquarters in a new office building in downtown Richmond within the
MNA leased by the County. This building will have other agency offices besides
Social Service and wilt provide the physical attributes for increased coordination
of services. Many other County funded services are in nearby scattered locations.
Some will be combined. Others, such as youth group activities or Headstart Nursery
School programs serva better if by themselves.
1
_22-
In the outlying neigiborhoods, other county interagency offices are planned but.
• not yet available.
Neighborhood Centers combining service, recreation and cultural programs will
eventually exist in aach of the several neighborhoods making up the demonstra-
tion area. Shields-Reid Center is already operating in North Richmond; Martin
Luther King Center is under construction; architectural drawings are in pre-
paration for Parchester, and the Nevin Center Project is in the planning stage.
In addition, five elementary schools, a continuat;on high school , pre-school anJ
child care centers, a State Service Center (HRD) and a Concentrated Employment
Program are all within the area. These comprise the basic physical facilities.
_ Governmental institutions which will be involved End lend their expertise incluJe
all Contra Costa Couity departments, the City of Richmond and especially its ned
• Department of Community Development, Richmond Uniied School District and Contra
Costa County Junior College.
As to the private agencies, the United Bay Area Crusade is particularly interested
in coordinating and expanding private services- through purchase of six service
agreements. In the MNA four major community action agencies exist --Southside
-Center, People Pledged for Community Progress, North Richmond Neighborhood House
and the Council of Spanish Speaking.
F. Characteristics of Applicant and Affiliates.
See above under A-2, Background, and E, Facilities Available
G. Support Data and Other Information
Attached herewith.
.H. Dissemination of Results _
All reports and evaluations will be available to all interested persons and may
be published as app-opriate.
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f
IN THE BOARD OF SUPERVISORS
OF
CONTRA COSTA COUNTY, STATE OF CALIFORNIA
In the Matter of Report of ) April 11, 1972
County Welfare Director on )
Proposed Service Integration )
Program and Allied Services )
Act of 1972• )
Mr. R. E. Jornlin, County Welfare Director, having
appeared before the Board and submitted a report dated April 10,
1972 (a copy of which is on file in the Office of the Clerk of
the Board) stating that the U. S. Department of Health, Education
and Welfare is considering a $100,000 grant to Contra Costa
County to establish a program to integrate services to welfare
families in connection with the Richmond Model Cities Program,
which program could potentially apply to the whole county, and
that under said program a welfare family would be aided not only
with money and housing, but also with employment, marital,
juvenile delinquency, health and similar problems; and
Mr. Jornlin having also reported that the Service
Integration Program would be a pretest of the Allied Servicer Act
of 1972 now before Congress, which sets forth the concept of in-
tegrated services as a revision of welfare programs; and
Mr. Jornlin having requested that the Board approve
continued exploration of county participation in the aforesaid
program inclusive of the necessary planning needed for Contra
Costa County to enter into a pretest of the Allied Services Act;
and
On motion of Supervisor W. N. Boggess, seconded by
Supervisor A. M. Dias, IT IS BY THE BOARD ORDERED that the request
of the County Welfare Director is APPROVED.
The foregoing order was passed by the following vote of
the Board:
AYES: Supervisors J. P. Kenny, A. M. Dias,
J. E. Moriarty, W. N. Boggess,
E. A. Linacheid.
NOES: None.
ABSENT: None.
I HZEMBY CERTIFY that the foregoing is a true and correct
copy of an order entered on the minutes of said Board of Supervisors
on the date aforesaid.
cc: County Welfare Director Witness my hand and the Seal
County Medical Director of the Board of Supervisors affixed
County Health Officer this 11th day of April, 1972.
County Probation Officer
County Counsel W. T. PAASCH, CLERK
County Personnel Director
County Administrator By
Richmond Model Cities 4Es Pigott
Deputy Clerk
I1
R: E.JORNLIN . •.
owccroR SOCIAL SERVICE DEPARTMENT ��{{
CONTRA COSTA COUNTY W77-7
MEMORANDUM W T. P A A S C H
CLE BOA OF SUPERVISORS
By COSTA
TO: Board of G6pervisors autr
FROM: R. EF 2niin, County Welfare Director DATE: April 10, 1972
SUBJECT: SERVICE INTEGRATION PROGRAM AND ALLIED SERVICES ACT OF 1972
Traditionally, public welfare departments have been heavily• involved
in trying to meet all types of problems in* a community. Much of this
effort has been handicapped by agency limitations and fiscal barriers.
Last week, I reported an important breakthrough regarding the use of
public welfare funds in developing youth programs and serving the pre-
delinquent.
Your human service departments have been attempting to overcome some
of these barriers to solve more effectively family and community prob-
lems. We have tried interagency development, created a planning and
development division, established neighborhood centers, and recently
programmed the social service management system for computer use. Prog-
ress, however, has been slow fora number of reasons; but a major factor
has been the ridigity of federal and state laws and programs.
We have, however, recognized for some time the need for a structured
and coordinated problem-solving service to be delivered to the community,
with evaluation and accountability controls and measurements to accompany
these services.
Several months ago, the Social Service Department and the Richmond Model '
Cities were approached by a special task force from HEW regarding our
willingness to demonstrate the concept of Service Integration. This is
a relatively new term which refers basically to the organization and
coordinated delivery of human service programs.
The objectives are:
1 . To reorganize methods of administering human service programs
so that maximum opportunity is afforded every family to become as
self-sufficient as, possible.
2. To identify multiple-problem families as families of concern
to the entire community, rather than of a single social agency.
To develop a coordinated pattern of service that avoids costly
duplication of agencies' efforts and provides families with
the kind of concrete services they need to become contributing
members of the community.
GEN.9
n
Board of Supervisors -2- April 10, 1972
3. To gather information on the nature and causes of family break-
down (e.g., ill health, poor housing, crime, alcohol, marital
discord, etc. ) 'so that all agencies may cooperatively develop
better means of preventing and controlling these conditions.
4. To apply this information to improvement of services rendered
by all health and human service agencies. To redesign existing
services, to increase efficiency, and improve quality. To create
new services as the need for them is .documented.
5. To interpret to the general public the importance of social re-
habilitation of families and to demonstrate that in many cases
health and other human services can prevent or control family
breakdown.
A copy of the proposed Service integration Program and budget is attached.
This has now taken on a much greater significance with the proposal from
President Nixon to Congress to enact the Allied Services Act. Thus, the
objectives in implementing a Services Integration Program is potentially
strengthened by this proposed federal legislation.
It should be noted in both the Services Integration concept and Allied
Services Act that the focus must be on the official problems for which
the community must be responsible, not the individual agency or service.
In our discussions with the federal staff, we were informed that each HEW
region would select a city or county as a demonstration area, except Region
IX comprising the seven western states which would select two: Contra Costa
and Honolulu. I understand we have been considered because of our progress _
in developing programs related to this concept.
Several weeks ago, Mr. Henry Dishroom, Model Cities Director, and I met
with the HEW task force in Washington, D. C. for further review of our pro-
posed Services Integration Program. We had requested $100,000 for the first
year primarily to reach out to the other agencies in the Richmond area; such
as schools, law enforcement, and community organizations. We also wanted to
further develop our Service Delivery Management System for interagency use.
A few days ago, we were asked by HEW to consider CCC as a pretest area for
the Allied Services Act of. 1972.. This act is probably the most important
legislation regarding human service programs for states and counties since
the first federal service programs were adopted. For the first time, there
is federal recognition that the proliferation of agencies and programs (over
250 in HEW alone) makes local coordination and integration virtually impossible.
President Nixon referred to the importance of this act in his State of the
Union Message when he said the Act was "to put the machinery of government
in proper working order . . . to reform and rationalize the way in which social
services are delivered to families and individuals. It would strengthen state
and local planning and administrative capacities, allow for the transfer of
Board of Supervisors -3- April 10, 1972
funds among various HEW programs, and permit the waiver of certain cum-
bersome federal requirements. By streamlining and simplifying the de-
livery of services, it would help more people move more rapidly from
public dependency toward the dignity of being self-sufficient."
A summary of the Act is attached.
This recognizes the following:
I. All people and families have problems in living--money, jobs,
health, family tension, school problems, anti-sociai behavior,
and other problems. Not all problems require community or
agency intervention.
2. When the problems require help, there should be an organized
and integrated agency and community approach. The problem soly-
Ing services should be focused on the current problem and provide
concrete, realistic, and "tangible services toward achieving a
specific objective or change.
3. A comprehensive diagnosis of the problems must be made in order
to systematically determine which agencies and staff are needed
to resolve or modify the problem. We all know that often a prob-
lem of one member of the family affects the entire family. Thus,
the fact that the father is out of work could affect the stability
of his marriage, how the children function in school and in the
community, and result in complex problems of marital and school
maladjustment or delinquency which require community intervention.
4. By identifying the problem and what is required to modify or solve
it, we can establish better measurements of accountability. We
will then be better prepared to know the extent of these problems
and how best to organize our community resources most effectively
and efficiently to resolve them. (Note attached data sheet. )
The Allied Services Act, we believe, would greatly enhance the efforts toward
these goals already started in CCC. We are requesting approval to expand the
original Service Integration Plan into a pretest of the Allied Services Act.
The pretest would allow us to use the provisions of the act prior to enactment.
For example: The secretary of HEW can waive some existing technical and ad-
ministrative regulations, such as the State Wideness Rule. -Provision is made
to shift up to 20 percent of federal funds between programs to achieve a coor-
dinated human service system. The Secretary has the authority to underwrite
the cost of the service delivery planning effort. It -allows us to request an
implementation grant. It would also allow for a centralization of services
administration and management on a scale not now possible.
This would then offer the means for assessing the impact of structured and
coordinated health and social services for the prevention or control of de-
pendency, physical disability, and the progressive breakdown or deterioration
of the family or individual.
r't,
Board of Supervis 4 'z� w Apri(` 10 1972k
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Our present plans are to meet .further with federal staff `on At '13 +d
continue the planning, needed for-
Al
r CCC to enter i06,:such a;pre'test of the "
A 11:l ed Services `Act..
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RICHMOND MODEL C*ES
PROGRAM February 8, 1972
SERVICES INTEGRATION PROGRAM PROPOSAL
INTRODUCTION: What is Services Integration?
"Services Integration" is a new term which refers basically to the
coordinated delivery and organization of human services . The concept
of services integration is not new, nor is the problem it addresses.
The fact that the individual person, family, or community typically
has many interrelated problems, but th.: services set up to address
these problems are often fragmented, unrelated, and therefore in-
efficient and less satisfactory than they could be.
The concept of "services integration" is currently a very live
issue within HEW, as well as on the lozal level, in County , City,
and Model Cities Programs. .
"Services integration" means different things to different people--
there is no one agreed-upon definition. Among its various definitions
are the following: -
--the organizing of services comprehensively around the
needs of the individual family , or community, rather
than organization according to function.
--a coordinated service delivery system which can provide
all those services needed by a given client or community.
--an approach to delivery of services which treats the
individual as a whole being, not as a person with
separate problems which can be treated in isolation
from one another.
--an interagency network of services .
--the integration of services at the local level for the
purpose of maximizing their actual •benefits to people.
--the process of combining or relating different services
across agency and program lines .
Services integration is being actively applied in various ways in
Richmond at this time, through the efforts of both the County
government and Richmond Model Cities . In Richmond, "services
integration" can be understood to include all of the various
definitions given above , in one way or other.
is
DESCRIPTION OF A SERVICES INTEGRATION PROGRAM PROPOSAL FOR RICHMOND
I. PURPOSE
To iinprove the overall quality, effectiveness , and responsive-
ness of human services delivery to residents of the Richmond •
'Model Neighborhood , through the implementation of the services
integration approach in a variety of ways . "Human serviceE "
will include the full range of social services (medical , social
welfare, mental health , public health) plus other services
affecting the total well-being of people (education, employment,
housing, recreation, crime and delinquency prevention) .
II. CONTENT
Richmond's Services Integration Program consists of the planning
design and phased implementation of a network-of-services
approach in the providing of human and social services in the
MNA. Existing agencies involved are : the reorganized County
Social Service Department, which includes the County public
health , medical and mental health services , and social services
departments ; other County departments (Probation, Housing
Authority) ; various City departments ; School District ; Model
Cities ; and local organizations and non-profit agencies . The
first year will consist mainly of the study , planning and
negotiation of various components of an integrated service de-
livery system, including the design and development of data
collection and case recording systems to support the network of
services and help it to work. Subsequent years in the program
will consist of further implementation ,of pieces in the delivery
system, with continual monitoring and evaluation of these
portions of the delivery system already implemented.
The program is basically a large-scale phased effort in the
reorganization of social services among a number of public and
private agencies and community groups. Other components in the ,
program include: intensive citizen participation in planning
and implementation of the program; development of resident
employment in the income maintenance as well as service delivery
components ; career training of residents ; establishment of
neighborhood centers in the MNA to contain a number of integrated
social services , and to test the effectiveness of neighborhood
centers for integrated services delivery.
III. OBJECTIVES
Overall Objective:
To implement and test various methods of combining and in-
tegrating human services in Richmond's MNA, through an inter-
agency network of programs which involve community residents
i
' 4
and public and private agencies, over the next few years .
Immediate (First Year) Objectives :
1. The collection,. compilation and evaluation of relevant
social problem data to define the major efforts to be
undertaken I,vrr.,.s J+rertswMLlc P,Jc�rA�i 9vft�s yf+r2 ��J`�` `
2. The development of a case assessment system to (a) identify
the specific problems of individuals and families and
(b) determine which components of the. service delivery
system should be applied in each case.
3. The development of a services integration planning and
implementation process which insures (a) viable resident
participation at each stage in the planning and program
implementation, (b) maximum resident employment and career
development opportunities built into each program component.
4. Refinement of a case recording and data collection system
to record the types of service provided and measure their
effectiveness in terms of improved individual well-being.
5. Development of a system which, using the data referred to
above, would continually assess the needs in the community,
the resources available, and indicate how and which services
should be developed or removed in the service area.
IV. BENEFICIARIES
The entire Richmond Model Neighborhood Area population of
18,510*, and in particular those MNA residents that are depen-
dent on a number of public social services for their family 's
well-being. "
V. OPERATING AGENCY AND COORDINATION
The Contra Costa County Social Service Department is the
principal operating agency for the Richmond services integration
program. Several other local service agencies and community
organizations will be operational participants in various
pieces of the integrated network of services to be developed
in Richmond.
VI. TIMETABLE
Efforts to develop human and social services integration in
Richmond and in Contra Costa County have been underway over
the past six years . A brief record of the highlights up to
the present day and of the anticipated timetable, are as follows :
*U.S. 1970 Census , First Count
it
1965 - Contra Costa County health and welfare agencies
begin developing methods of delivering a compre-
hensive range of human services .
1966 - Rodeo Community Service Center opened -- first
concrete test of services integration.
1968- Richmond Model Cities Program established. County
Inter-Agency Committee set up and systematic develop-
ment of integrated services for 14NA residents begun.
County Social Service Dept. assigns full-time planner
to Model Cities staff.
. 1969-71 Three (3) joint Model Cities-County Social Service
' Dept. projects implemented: Child Care Development,
Health Planning (Program Development) team, Health
Care Outreach. 'Eight (8) other projects developed
and implemented with Social Service .Dept. ' participation.
1971 - Proposal for "Interagency Neighborhood Canters" ` in
Richmond submitted by Program Planning and Development
Section of County Social Service Dept. to departmental
Director. Plans , prepared for construction of lst ,
interagency service center (at 14th and Macdonald) .
Nov. 19-71 - Reorganization of County Departments of Public Health,
Medical and Mental Health Services , and SocialServices, ;
into a single Social Service _Department, by County
Board of Supervisors.
i
.J
VTI. MONITORING AND EVALUATION
Ongoing monitoring and evaluation of models of services inte-
gration implemented to date (Rodeo Community Center, health
Care Outreach in Richmond, Brentwood Health Facility) has been
• conducted by the County Social Service Department. Plans for
services integration in Richmond include, specifically :
1. The collection, compilation and evaluation of relevant
social data to assist in defining major efforts to be
undertaken.
2. The refinement of a case recording and data collection
system to record the types of service provided and measure
their effectiveness in terms of- improved individual
well-being.
3. The development of a system to use the data (referred to
above) to continually assess the needs in the community ,
the resources available , and indicate how and which services
should be developed, expanded, or removed in the service
area.
-Model Cities Program monitoring and evaluation staff units will
participate in the assessment of services integration in Richmond,
at each step of its implementation.
VIII. CITIZEN PARTICIPATION
Viable, effective resident participation in the planning and
implementation of each Model Cities project to date of a
"services integration" nature has been insured, both through
the program committees (Social Services , Health, Crime and
Delinquency, Housing, etc. ) and through individual project
committees (e. g. , Child Care Advisory Committee) . Citizen
committees will review plans and designs for each interagency
neighborhood center, and proposals for any other components in
the services integration program for Richmond. Citizens will
take part in ongoing monitoring and evaluation of all program
components once they are implemented.
IX. RESIDENT EMPLOYMENT
Development of para-professional , professional, and service
employment positions •designed expressly for NNA residents is
an integral part of the services integration program plans
for Richmond. The mechanism for insuring maximum resident
employment is the HUD CDA Letter ull, the Model Cities Resident
Employment and Training Plan, and the CDA administrative staff i
procedures to insure implementation of this plan.
r - :
f.
X. FUND?NG* � .
k
Financial assistance needed immediately for design and develop-
ment of a complex, sophisticated service delivery- system for
Richmond, is being sought from the Federal Department of Health,
Education and Welfare (HEW) . A rough estimate of cost is
$100,000. for the first year-.
Funding for components of the-, services integration program in .
Richmond is variable, and.-Will 'include: HEW ``(principally) , DOL,
HUD, Model Cities ;Funds, Dept. of Justice' , 'State, . County, ;
City, OEO, EDA, and privatesources .
• *(For further specific information on funding sources. for Richmond's
services integration program, see "Ongoing Services in Richmond"
a four-page attachment to letter to Mr.. Harry Kennedy from R.E. Jornlin�=
and Henry Dishroom, dated Nov. 10, 1971) . .
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THE ALLIED SERVICES ACT OF 1972
The Allied Services Act of 1972 is designed, as President Nixon said
in• his State of the Union Message, "to put. the machinery of government
in proper working order. . .to reform and rationalize the way in which
social services are delivered to families and individuals . It would
strengthen State and local planning and. administrative capacities ,
allow for the transfer of funds among various HEW programs, and permit
the :waiver of certain cumbersome Federal requirements . By stream-
lining 'and simplifying the delivery of services, it would help more
people move more rapidly from public dependency toward the dignity of
being self-sufficient. "
THE PROBLEM
The primary target of the Allied Services Act is the fragmented service
delivery "non-systems" spawned by an ever-proliferating array of Federal
categorical programs. The Department of HEW has nurtured this morass
by creating more than 250 categorical programs which have resulted in
the establishment of separate State and local special purpose institutions
to administer these programs.
The lack of coordination and consolidation has led to great inefficiency
in the utilization of human and monetary resources. But more importantly.. '
the fragmented social services network has frustrated the bewildered
recipients and has 'not effectively assisted them in receiving needed
services.
To highlight this problem, a typical welfare mother must deal with the
county welfare office for income support payments, the local education
system for basic education to overcome illiteracy, the State-run employ-
ment service for job training and placement, and the local social services
agency for day care for her children. When health care is added to the
list, the complexities multiply. No single agent is responsible for
analyzing the welfare mother' s problems and ensuring that she successfully
navigates her way through the labrinthine . system. It is a fact that 8S%
to 90% of HEW's clients have more than one service need--and each faces
endless rounds of service agencies in search of the programs designed
for him. The person least able to put it together, the client, is the
only one who is charged iiith this awesome task.
The delivery of HEW' s services not only is unresponsive . to the multiple
needs of its clients , but also is unresponsive to the political systems
responsible for and accountable to these citizens. HEW accounts for
Goa of all Federal funds given to the nation' s cities while the next
largest contributing agency, HUD accounts for only 150 of Federal funds
flowing into cities. Yet despite this significant transfer of human
services resources to States and cities, Governors and Mayors have little
or no role in the allocation and delivery of the services resources coming
into their jurisdiction.
Their efforts at consolidation are frustrated by red tape. Many provider
agencies give up any attempt to provide comprehensive services and simply
administer the programs separately regardless of the inefficiencies, dup-
lication, and waste they know results .
PROPOSED STRATEGY
The Allied Services Act of 1972 speaks directly to these problems.
The creation of several new authorities under this act would include
planning . and administrative grant authority to cover the start-up costs
for those States and localities wanting to implement the new authorities.
These authorities would encourage States and localities to coordinate
the provision of human services to individuals and families to assist
them in attaining the greatest degree of personal independence and economic
self-sufficiency that may be feasible.
The major service reform features of the proposed Allied Services Act of
1972 currently being drafted provide the following:
• The Secretary of Health, Education, and Welfare has the authority
to underwrite the costs of comprehensive service delivery planning
for States and communities which want to coordinate their service
efforts .
. After consultation with public and private service agencies, local
agencies would be designated by the Governor to develop a plan.
This agency could be a unit of general purpose local government or
a public or non-profit private agency which could develop and
implement a broad range of human services.
• Once the comprehensive, coordinated plan is approved by the Governor
and HEW, States and localities may shift some Federal funds between
programs to fit the needs as determined locally. This transfer
authority could involve as much as 20 percent of Federal assistance
for programs included in the plan. Such pans would reflect the
overall needs of the person seeking help, rather than splitting his
needs along the artificial lines of the existing fragmented delivery
system.
. Approval of the plan would also make the States eligible to compete
for implementation grants. These grants would be used to meet the
administrative costs of coordination; they would not be used to
provide additional services or to meet the non-Federal share of
Federally-assisted programs.
• Authorize. the HEW Secretary to waive technical or administrative
requirements--such as statewideness provisions--that have been
certified by the State or locality as impeding the allied services
plan . The ability to establish coterminous service area boundaries
would be provided.
i!
Each plan would include the coordination of core services consisting of s'
programs paid for out of Titles I, IV A, IV B, X, XIV, and XVI of the
Social Security Act, -with at least three additional human services
programs,' These additional human services programs could be chosen from
the broad spectrum of categorical areas such as . day careandchild develop
ment,* vocational rehabilitation, educational programming programs _
for
the aging or health delivery services
The Allied Services Act envisions the reform of service delivery by getting
States, and communities directly involved in humanservicesplanning:. It.
will also provide a mechanism for greater efficiency by enabling the
centralization of services administration and management on a scale not
now possible.
Such plans would include consumer involvement in the development and imple.-
mentation of the integrated services plan and a -single ,local 'agency
responsible for program' implementation, . and` thus more directly. accountable.
to the client. ,
Participation in this program is voluntary, and the choice belongs to the
person ultimately responsible for the program .under State and local law.
11,
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FOR 11A 1 1tJ+ ,.Jil•U C I
CAS--' 17U:(iii.i{(.S) ADD. "�S (:T
yS. XdIC:; 111:,'.;1; zte ser_uicc CasF-At:
n 1'Ita7r_-/J-"C. toW C 47 .
PROBL2•i ID 9'CI1'ICATI01�!(Circle Plumber) CASE STATUS
THIS FOR1.1: (Circle One)
1. Employment C;44-
2. Health tom--.Initial Assessment/Contrac
3. Mental retardation 1. Standard
Serv. Request 4. Mental Illness 2. Limited
/ 1 5. Dys{u��hnnaa Com,40-:hy a�°s ""'I- 3. Inactive
6. Managing of Finances 4 Brief wrA9>pra15al OhN
7.. . Housing (progress evaluation)
Serv. Referr 8• Legal 5. New Contract
9. Marital (� . Standard
10. Neglect,Abuse,Exploitation- /7 . Limited
Children S Inactive
Assigned Sl•1 11.. Neglect,Abuse,Exploitation-P.dults P?,. Contract Extended
12. Child Rearing <-_.1) 'S 5 0AJ
13. Individual Adjustment-Children i O. Ca;� Ciortd
14. Individual Adjustment-Adult ( t: -Ease r3i,r P�rire_d
Co;�pleted - �✓o SE�I/iCE-�7lSo,�/�Grcle One)
SEI3VICF.S TO BE PROVIDED (Circle Number) 1. Unavailable/Community
FAMILIES & CHILDRr't3 2. CL/Refused
3• CL/Resist.
/A D•ae 1. Protective Services C)
R
' 2. PS Homemaker {F) 4. Provided - Other Agency
Reg.- 3 Mos. 5. Ineligible/Service
3. PS 0/H Care (Fa C•)• 6. Staff Shortage
Less/ 3 Mos. 4. PS Child Care (FdC)
PS Mone Management �F) 7• do Serv'�ce l�eqqVrred .
5• Y g 16 uect
6. PS Legal (F) RFAASONS FOR TERMINATION (C'
rcl
Inactiie 7. Child Care (no PSJT1V,H1•IKR,LIC)-(FaC) 1. 8ri&F �rvl,_e (Aplekd �nel
8. CC ;;DJ (FaC) 2_ Contract Completed
9. CC Homemaker (F'4C% 3, CL/Deceased
10. CC Licensing (NcsAes ) 4. CL/Moved/Unable Locate
R/A Compl. 'll. 0/H Care (no PS)- CF4C) 3- CL/Transferred
12. 0/H Licensing b-kfhi1,) t,. Inactive Status
13. Homemaker (no Child Care ,PS)- LF) 7, SW/CL Agreed/Incompl.
14. Health Care (incl. Mental Health)-(rsC Contract
Terrain. 15; Family Planning (PC) SW Terminated- _
16. Emplo.Zment & Rehabilitation - WIN(�C) q. Incl,g• Con4ir1J�n7vierwCe
17. Employment & Rehabilitation-VSD/ETS(� p
� � ,_� . �ct-vrCr hpprats. pm.p
CAST; TYPE 18. Housing (P) 7 1-1 . Cl_--F'
� ,E� 1�efec�ed
. fmtn
(Circle_ One) 19. Legal (no PS) -}LF' SERV(CG COALS Ct21c "e)___
OWL-y Adoption C P"- C 1. Dependent Care
SE�u(CC y 21. Services to Strep then,etc.
_ g 2. Alternative Care
(,Forme.- a�okn�ial (excl. MH, Family Planning) - (F)
` 22. SS Child Support 3. Self Care4. Self Support
Z. Non-a.�d r 23. SS Money Management (7►c� PS)- (►') 5•
1Jo�
It,h+�d 24. Information & Referral - Other(Fd C )
ADULT EVALUATION - SERVICE GOALS
(Circle One)
40. Protective Services
? '41. PS Homemaker 1. Achieved Gcaf
7. - 42. PS 0/H Care 2. 5c rra 1 m pfa v e t+,e..,f
43. PS Health Care 3. do Ch9e
--- 44. PS Legal �{. 17e tui c r2fion
J;SEP_L;,GC Rec_Etu'cp 45• PS Money Management TICKLII; 1,L; ON L.
Adult 1. 46. 0/H Care (no PS, Licensing)
Family 2. 47. 0/H Care-Licensing ( E rti,,A5)
? 48. Homemaker,Attendant Care(no PS)
Children3• 49. He.rlth Care(ro PS.Includc 1•lent.111th)
50. Employment & Rehabilitiation-VIII
51. Employment & Rehabilitiation-VSD/..TS Neuf NceA for :CAZm5cs t�
Birthdate Of 52. housing (no PS)
E
53• Legal (no PS) I,e1,�,1,� st�u� � be
Service Name
54. Chores -;z-"'S"ti'Pc l L�
55. Chores-Attendant Care-Domestic 4, ao 4
56. Enable Ar-,ed Mental flonnital Patientzk needed
POCDNI C't 43 S7. Service-s to Strcns.then,este.(i;o 11t1) C ram eY
`? � � Manngement. (no P.',):ce�1-5tU t� � 58. SS 1'10.._,, �!�
r -.
1
ALLIED SERVICES ACT OF :2972 ,REEL`S PQSZmZo�*�
1972=1976
STORED:
HOC ,,,-