HomeMy WebLinkAboutMINUTES - 11081994 - IO.1 I0. 1 and I0. 2
THE BOARD OR SUPERVISORS OF
CONTRA COSTA COUNTY, CALIFORNIA
Adopted this Order on _November 8, 1994 by the following vote:
AYES: Supervisors Smith, Bishop, DeSaulnier, Torlakson, Powers
NOES: None
ABSENT: None
ABSTAIN: None
SUBJECT: Homeless Shelters and Program
The Board earlier this day approved the recommendations
of the County Administrator relative to reorganizing the
structure, funding and operation of programs for the homeless in
Contra Costa County. The overall program responsibility for the
homeless was transferred to the Health Services Director effec-
tive December 1, 1994. The Health Services Director was
requested to further report to the Board in December.
In view of the action taken by the Board on the
reorganization of the homeless program, the reports of the
Internal Operations Committee on this subject were not presented.
However, the Board agreed that the reports may provide background
information and concurred on their referral to the Health
Services Director.
Therefore, IT IS BY THE BOARD ORDERED that the reports
of the Internal Operations Committee as listed are REFERRED to
the Health Services Director for background:
I0. 1 Report on the operation of the homeless
shelters in Contra Costa County; and
I0.2 Report on the staffing and funding for the
preparation of a coordinated plan on home-
lessness.
I hereby certify thct this is a true and correct copy of
an action takcn and entered on the minutes of the
Boar,' of Supervisors on the date shown.
ATTESTED: ? / P9 1
PHIL BATCHELOR,Clerk of the Board
of Supervilmrs and County Administrator
cc: Health Services Director Denut-
L'KJ
County Administrator
TO: BOARD OF SUPERVISORS Contra -
FROM:
INTERNAL OPERATIONS COMMITTEE "J f�► \ Costa
'
County
October 31, 1994
DATE: ,.._C,;U;'
SUBJECT: REPORT ON THE OPERATION OF THE HOMELESS SHELTERS IN CONTRA COSTA
COUNTY
SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&I BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS:
1 . ACCEPT the report from the Public Health Director, Dr. Wendel
Brunner, and express the Board' s appreciation to him, the
Health Services Director, the staff who assisted in the
preparation ..of the attached report and the staff of the
Housing Authority and Shelter, Inc. , all of whom have been
extremely professional and open during this process .
2 . AGREE that the existing shelter program has benefitted many
individuals 'and that the existing shelter staff are clearly
dedicated and committed.
3 . AGREE that the existing shelter program consists primarily of
managed transitional housing programs, rather than emergency
shelter programs .
4 . CONCLUDE that the County' s contract with Shelter, Inc. lacks
flexibility and professional oversight.
5 . CONCUR thati. clients in the shelters have at least two
different case managers or counselors and in some cases as
many as three or four and that this situation promotes
confusion for the client and ambiguity about the mission of
the program.
6 . RECOGNIZE that while the physical facilities are reasonably
adequate, only one meal a day is provided to shelter residents
and that, as a result, many residents are not receiving an
adequate daily supply of nutritious food.
CONTINUED ON ATTACHMENT: YES SIGNATURE:
RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE
:%PPROVE OTHER
SIGNATURE(S): aFF�MTrPH MARK D®SAIII,NIER
ACTIG^J OF BOARD ONNavember i2 X3994 APPROVED AS RECOMMENDED OTHER
\e
VOTE OF SUPERVISORS
I EBY CERTIFY THAT THIS IS A TRUE
UNANIMOUS(ABSENT ) AND CO ECT COPY OF AN ACTION TAKEN
AYES: NOES: AND ENTERE THE MINUTES OF THE BOARD
ABSENT: ABSTAIN: OF SUPERVISORS 0 HE DATE SHOWN.
ATTESTED
Contact: PHIL BATCHELOR.CLERK HE BOARD OF
cc: See Page SUPERVISORS AND COUNTY AD STRATOR
BY EPUTY
7 . AGREE that structural changes in the operation of the shelter
programs could remove the perception of power abuse and
correct many of the problems that exist.
8 . DIRECT the County Administrator to include in the planning for
a comprehensive, integrated plan for serving the needs of the
homeless an evaluation of the need for emergency shelters as
a compliment to the transitional shelter program which is in
existence.
9 . REAFFIRM that the County needs to have in place a transitional
housing program along the lines of that which is now in place.
10 . CONCLUDE that the County needs to have a single point of
control for the entire complex of programs for the homeless in
the County and DIRECT the County Administrator, in
consultation with all affected departments, to identify for
our Committee where that control point should be and make
further recommendations to our Committee on this subject as is
appropriate.
11 . CONCLUDE that the County needs to have a single set of
counselors/case managers dealing with a homeless client and
DIRECT the County Administrator, in consultation with all
affected departments, to identify for our Committee how this
can be accomplished and how the existing system can be
combined into a common, unified team with adequate guidelines,
training, and supervision to meet the challenges of this
County' s complex homeless population.
12 . AGREE that a training program for direct service and
management staff at the shelter should be developed and
implemented and DIRECT the County Administrator, in
consultation with all affected departments, to make further
recommendations to our Committee on how this might be
accomplished.
13 . CONCLUDE that the County should have a single individual who
is responsible for monitoring and oversight of the County' s
contract with Shelter, Inc. and DIRECT the County
Administrator to make further recommendations to our Committee
on how this .can be accomplished.
14 . AGREE that the County' s contract with Shelter, Inc. may lack
essential elements of flexibility and DIRECT the County
Administrator, in consultation with all affected departments,
to make further recommendations to our Committee on how the
County' s contract with Shelter, Inc. can be amended to place
authority and responsibility appropriately so that the Board
of Supervisors addresses major policy issues and does not have
to address on-going operational details of the programs for
the homeless .
15 . AGREE that the Shelter Program and management should be
reviewed and evaluated on an on-going basis by the Shelter,
Inc. Executive Director and the County' s contract monitor and
DIRECT the County Administrator, in consultation with all
affected departments, to make further recommendations to our
Committee on how this can most appropriately be accomplished.
16 . DIRECT the County Administrator, in consultation with all
affected departments, to consider the need for and feasibility
of appointing an ombudsman to receive and address problems
brought to his or her attention by shelter residents or their
representatives or advocates and make further recommendations
to our Committee on this subject.
2
17 . DIRECT the County Administrator, Health Services Director, and
Executive Director of the Housing Authority to report to our
Committee on November 14, 1994 on an appropriate extension of
the existing contract with Shelter, Inc. while amendments to
the contract are being prepared and while other elements of
this report are being put in place.
18 . DIRECT the County Administrator, Executive Director of the
Housing Authority and County Counsel to report to the Board of
Supervisors on December 6 , 1994 on the revised rules for the
operation of the shelters which were apparently forwarded to
the Housing Authority and County Counsel in December, 1993 .
19 . DIRECT the County Administrator to provide a progress report
to the 1995 Internal Operations Committee in January, 1995 on
the status of each of these recommendations and for this
purpose refer this matter to the 1995 Internal Operations
Committee, leaving on referral to the 1994 Internal Operations
Committee . only the issue of the contract extension with
Shelter, Inc.
BACKGROUND:
On September 13, 1994, at the request of Supervisor DeSaulnier, the
Board of Supervisors referred to our Committee the pending contract
between the County and Shelter, Inc. for operation of the single
adult' s homeless shelter. On September 27 , 1994 , the Board of
Supervisors approved a report from our Committee asking Dr. Wendel
Brunner to investigate any and all allegations of improper
treatment of homeless individuals, as well as positive experiences
individuals had with the shelters and provide a report to our
Committee on October 31, 1994 .
On October 31, 1994 our Committee met with staff from the County
Administrator' s Office, the Social Services Department, the Housing
Authority, staff and Board members from Shelter, Inc. , members of
the Homeless Advisory Committee and other interested individuals .
Dr. Brunner presented the attached report to our Committee and
reviewed the findings and recommendations in some detail . In
response to a question from Supervisor DeSaulnier about whether any
of the individual serious allegations which had been made were
true, Dr. Brunner noted that the team which conducted the
interviews did not attempt to validate or discount any of the
allegations in sufficient detail to make a judgment about the
veracity of any of the allegations .
Susan Prather noted that some very serious accusations have been
made and that they should be investigated.
Bob McEwan and Pat Pinkston from the Housing Authority indicated
that they could take no exception to anything in the report. They
noted that most of the recommendations require more money than the
Housing Authority has available but represent things the Housing
Authority would like to do if it had the money. Pat Pinkston
specifically noted that the issue of meals is a major cost item.
She also pointed out that because of the several lawsuits that have
been filed on various aspects of the homeless program, staff would
have to look carefully at what changes can be made in the programs
within the limits of court decisions and settlements .
Merlin Wedepohl, Executive Director of Shelter, Inc. noted that he
and his staff have been talking about many of the issues and
recommendations which are included in the report. He agreed that
the contract is difficult to administer because so many details and
rules are included in the contract and can only be changed by the
Board of Supervisors . He readily admitted that shelter residents
3
are not receiving enough food. Mr. Wedepoh1 also agreed that they
need better management and technical assistance. He indicated that
he and his agency look forward to working with County staff on all
of these findings.
Phil Bertenthal from Contra Costa Legal Services Foundation said
that the report is absolutely correct regarding the distinction
between emergency shelters and transitional housing. He pointed
out that the current shelter buildings are emergency shelter
buildings and will never serve adequately as transitional housing
facilities . Mr. Bertenthal indicated that last year the Board of
Supervisors had asked the Homeless Advisory Committee to review the
rules for admission and residing at the shelters and suggest any
needed changes . In December of 1993 the Homeless Advisory
Committee forwarded recommended changes to the Housing Authority
and County Counsel . Mr. Bertenthal claims that no action has been
taken on their recommendations to date. Mr. Bertenthal also
pointed out that in 1992 the Board of Supervisors had cut the
budget for homeless programs by 50% . He suggested that the Board
of Supervisors needs to take a look at the implications of these
funding decisions . The Social Services Director, Perfecto
Villarreal, confirmed that the budget had been $1, 134 , 000 and was
cut to $587,000 .
It was also suggested that the Housing Authority and Shelter, Inc.
do not now have a consistent flow of funds throughout the year. It
is difficult to hire outstanding staff when the staff cannot be
promised a job for more than a few months .
Ray Loveday, a member of the Homeless Advisory Committee, commented
that he thought the report was excellent. He confirmed that there
are at least two staff members working with each resident and in
some cases there may be three or four staff responsible for a
single individual . These staff do not always agree on what the
resident should be doing and thus the resident often gets
conflicting instructions . He indicated his belief that the
Shelter, Inc. staff was not properly trained and that even when
they are trained, it takes a special type of person to work with
the multiple problems which most homeless individuals have. He
indicated that Phoenix Programs has previously offered training to
the Shelter, Inc. staff in how to work with an individual who has
a mental disability, but their offer has never been accepted. Mr.
Loveday repeated his offer to provide such training at no cost to
the Shelter, Inc . staff .
Susan Prather shared her belief that the program has been
mismanaged and that thousands of dollars have been wasted.
Perfecto Villarreal provided some background to the development of
the homeless programs in Contra Costa County, from 1986, when the
first homeless programs were established in the National Guard
Armories, to the County' s first allocation of funds and the
creation of Shelter, Inc. to administer the armory programs . He
indicated that the County deserves credit for having funded year-
round programs for the homeless . He indicated his belief that
Shelter, Inc. has done a remarkable job with the limited resources
which have been made available. He agreed that the lack of funds
is a major structural problem for the homeless programs and that
hopefully additional funds and a guaranteed funding stream will be
made available through the federal HUD initiative.
Scott Tandy, Chief Assistant County Administrator, indicated that
the report gives ;us something to build on. He agreed that there
are things that need to change. The Housing Authority has been
designated as the agency to administer the contract with Shelter,
Inc. and they have done a good job with the resources they have had
available. He 'also noted that the real problem is with the on-
going operational costs of homeless programs .
4
Other individuals also addressed our Committee. Their comments
generally were supportive of Dr. Brunner' s report, supportive of
the need for revising the shelter rules, and supportive of the need
to have only a single case manager or counselor to work with a
resident.
Steve Roberti, President of the Board of Directors of Shelter, Inc.
suggested that we must not overlook the positive statistics in the
report, like the fact that 36% of the residents were discharged to
stable living environments .
Supervisor Smith summarized the discussion by noting that he
believes that everyone who has been involved has the best of
intentions . There are many different disciplines involved in
working with homeless individuals and each person looks at homeless
programs from his or her background and professional discipline.
There is no quick and easy solution to these issues . We will have
to evolve into a solution that works . Our Committee is not
pointing the finger at anyone and saying that someone did something
wrong in the past. We are acknowledging that we have some problems
here and we are going to address those problems .
cc: County Administrator
County Counsel
Executive Director, Housing Authority
Health Services Director
Public Health Director
Executive Director, Shelter, Inc.
5
Contra Costa County
The Board of Supervisors HEALTH SERVICES DEPARTMENT OFFICE OF THE DIRECTOR
Tom Powers, 1 st District
Jeff Smith,2nd District �*E.........c o Mark FlnuCane, Director
Gayle Bishop,3rd District °, 20 Allen Street
Sunne Wright McPeak,4th District Martinez,California 94553-3191
Tom Torlakson,5th District '
(510)370-5003
n.
County Administrator , . }' z FAX(510)370-5098
Phil Batchelor °s q.�.�
County Administrator
UN
TO: Phil Batchelor, County Administrator
FROM: Mark Finucane, Health Services Director
BY: Wendel Brunner, M.D. C4��:_•�,�> a,,,,. , ����
Assistant Health Services Director for Public Health
DATE: October 28, 1994
SUBJECT: ASSESSMENT OF HOMELESS SHELTER PROGRAM IN CONTRA
COSTA COUNTY
The Contra Costa Board of Supervisors on September 13, 1994 asked the Health Services
Department to evaluate the Homeless Shelter Program managed by Shelter, Inc. under contract
with Contra Costa County. Attached is the report prepared from a site evaluation conducted by
Bob Kajdan and Suzzette Johnson from the Substance Abuse Division and Dale Jenssen from
Pittsburg Pre-School Coordinating Council.
We recognize that shelter clients have multiple problems, and providing programs requires a
continuum of services. Most shelter clients have a prior mental and/or substance abuse history,
and all are in the current crisis of homelessness. The homeless are a difficult population to work
with, and staff in all parts of the continuum require commitment and respect for the dignity of
homeless persons, as well as training and leadership.
KEY FINDINGS OF THE EVALUATION:
1. The Shelter Program has benefitted many individuals, and many shelter staff are clearly
dedicated and committed.
2. These residences are not traditional emergency shelters, but rather more case managed
transitional housing.
3. The County's contract with Shelter, Inc. lacks flexibility and professional oversight.
4. There are two different case managers for a client, each reporting to a different agency
and guided by a different approach. This dual system of case management promotes
confusion for the client and ambiguity about the mission of the Program.
Merrithew Memorial Hospital&Clinics Public Health • Mental Health • Substance Abuse Environmental Health
Contra Costa Health Plan Emergency Medical Services • Home Health Agency Geriatrics
A-345 (2/93)
5. The facilities are reasonably adequate but only one meal a day is provided.
6. There are allegations of arbitrary exercises of power by shelter staff over homeless clients.
Structural changes could remove the perception of power abuse, and correct the problems
that exist.
As a result of these findings we have developed a set of recommendations which address the
structural problems and indicate a method of resolution. We believe that if these
recommendations are implemented, the Program would be even better prepared to improve the
lot of h6meless people.
RECOMMENDATIONS
1. The planning for the continuum of homeless programs should address the needs for
emergency homeless services in the county.
2. The County Administrator's Office should identify the appropriate professional manager
or program within the County to monitor the Shelter, Inc. contract and provide
professional support, technical assistance, and management/evaluation oversight.
3. Combine the two sets of case managers/counselors into one common unified team with
adequate guidelines, training, and supervision to meet the challenges of this complex
homeless population.
4. A training program for direct service and management staff at the shelter should be
o developed and implemented.
5. The Shelter Program and management should be reviewed and evaluated on an ongoing
basis by the Shelter, Inc. director and the County contract monitor.
The Homeless Shelter Program has clearly provided an important service to many individuals and
has positively affected their lives. -We believe there are significant structural changes which, if
implemented, would improve the effectiveness and efficiency of the Program.
MF:WB:ah
Attachment
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AN::::: SS SSMENT O THE
HOME ESS SHELTER PROGRAM
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IN CONTRA COSTA ;COUNTY
Oc;te 1994
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Mark;;Finueane
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Heaft Ser lees Director
...:....::..:::. ....... .
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re; ark
Wendel'Br'uner.,: 1WI.D
Assistant Health Services'Director for Public Health
with;Dale Jenssen Suzzette Johnson, Bob Kajdan
AN ASSESSMENT OF THE HOMELESS SHELTER PROGRAM
IN CONTRA COSTA COUNTY
October, 1994
I. INTRODUCTION:
On September 13, 1994, the Contra Costa County Board of Supervisors asked the Health
Services Department to evaluate the Homeless Shelter Program managed by Shelter, Inc.
under contract with Contra Costa County. The Department designated Dr. Wendel
Brunner, Assistant Health Services Director for Public Health, to oversee the assessment.
Dr. Brunner appointed a task force consisting of Bob Kajdan, Community Substance
Abuse Services; Suzzette Johnson, Community Substance Abuse Services; and Dale
Jenssen, Pittsburg Pre-School, to implement the assessment. Bob Kajdan has experience
managing substance abuse programs in Illinois and California and currently managed
residential substance abuse treatment contracts for the Substance Abuse Division. Suzzette
Johnson oversees the Women's Services Unit, including Born Free and the Options for
Recovery Program for perinatal substance abuse treatment. Dale Jenssen supervised the
County's AIDS Street Outreach Prevention Program, and currently works for Pittsburg
Pre-School.
The task force conducted on-site visits of each shelter, reviewed client charts, met with
staff of Shelter, Inc., met with staff of the County's Health Care for the Homeless Team,
interviewed former and current shelter residents, talked with community advocates for the
homeless, reviewed resident complaints, reviewed written testimonials and statements,
evaluated statistical reports of resident outcomes,and examined the County's contract with
Shelter, Inc. Dr. Brunner and the task force discussed observations, findings and
corroborative data in order to assess the efficacy of services to homeless persons.
The shelters serve a wide variety of county residents. About 80% are male, 20% are
female; about 50% are African-American, 35% are White, 10% are Hispanic and 5% are
other; about 5% are employed, 20% are on General Assistance, 15% are on SSI/SDI and
60% have no income. Most of the clients have a prior mental health and/or substance
abuse treatment history. Many of the clients have a history of suffering trauma such as
childhood incest, rape, battering, and emotional or physical abuse and/or abandonment.
Many suffer from post-traumatic stress syndrome as a result of this history or from
military service in the Vietnam War. All are in the current crisis of homelessness. A
large number are taking medication prescribed by a psychiatrist for major mental health
disorders. A significant number are HIV infected and many are abusing alcohol and/or
street drugs.
Most clients can stay at the shelters either three or six months, and many are involved in
outpatient mental health and substance abuse treatment programs during this time. Many
are involved in job search programs, vocational counseling and other specialized treatment
programs. Last, year, 36% were discharged to stable living environments, 3% were
discharged to residential substance abuse treatment and 36% were disqualified due to an
inability to comply with program rules.
ASSESSMENT OF HOMELESS SHELTER PROGRAM.1N CONTRA COSTA COUNTY OCTOBER 1994
It is evident that most clients in shelters have multiple problems and are often fragile and
vulnerable. It is clearly important that staff in shelters dealing with this homeless
population be trained and closely supervised. All service agencies and providers, no
matter where on the continuum they are, should be mindful that all homeless persons are
deserving of respect for their dignity and individual circumstances, and that services
should be delivered on that basis, even when there are frustrations and difficulties.
II. FINDINGS:
The evaluation team did not do a complete analysis of the Shelter Program, and there are
many areas of shelter program and management that were not reviewed or could use
ongoing evaluation. Not everyone who contacted us was interviewed, nor did we do a
complete evaluation of the clients, case management strategies and effectiveness, finances,
or many other aspects of the Program. Nonetheless, we feel that we have established a
good basis to make the following findings and recommendations.
1. The Shelter Program has been a benefit to many individuals, and many
persons have had their lives assisted through this program. That is clear from
the written testimonials and the statements from individuals in front of the Board
of Supervisors meeting, as well as interviews we have had with some shelter
clients. The Shelter, Inc. statistics show that of 925 clients who entered the
system last fiscal year, 331 or 36% moved to a more permanent housing situation.
The statistics don't indicate how many of those individuals were able to maintain
their housing situation, and a certain percentage undoubtedly ran into difficulties
again and returned to homelessness, but this positive outcome for many individuals
should be kept in mind as we proceed with the remaining findings and
recommendations. Many shelter staff encountered are also clearly dedicated and
committed.
2. Despite what they are often called, these residences are not traditional
emergency shelters, but rather case managed transitional housing. Contra
Costa County does not maintain traditional emergency shelters as part of its'
homeless continuum. Emergency shelters are defined as shelters that provide
safe housing for a temporary period time, often a few nights. Such shelters take
people from the street in the throes of their homeless crisis, and provide some
respite. During an emergency shelter stay, clients can be given some counseling
and an opportunity to choose a more structured, case managed transitional housing
program. Many homeless persons have significant life crisis, unresolved substance
abuse issues, or acute mental health problems that make a rigid case-managed
transitional program impossible for them.
The County's shelters are case managed shelters. These are defined as shelters
that provide temporary housing to clients who have case managers to assist them
in developing and implementing treatment plans, with the goal of assisting them
to eventually live independently in stable housing. Such shelters provide a variety
of treatment services and referrals to residents in an organized manner.
2
ASSESSMENT OF HOMELESS SHELTER PROGRAM IN CONTRA COSTA COUNTY OCTOBER 1994
This public ambiguity about the nature of the County's shelters leads to confusion
among clients and providers alike. The lack of a clearly understood and agreed
upon role for the county shelters provokes conflict with clients and a lack of
clarity among program planners. It is essential to clearly define the mission of the
Shelter Program so that it is understood by County providers, Shelter, Inc. staff,
and homeless clients.
3. The County's contract with Shelter, Inc. lacks flexibility and professional
oversight. The contract does not allow for sufficient freedom to change
operational procedures when day-to-day experience and client needs seem to
indicate the need for change. Even small alterations in the Shelter Program
require a specific act of the Board of Supervisors. In this way the contract with
Shelter, Inc. is different than the other contracts the County has with community-
based organizations for residential treatment. The Program also lacks ongoing,
professional support, technical assistance and monitoring by a County professional
charged with oversight responsibility.
4. There are two different case managers for a client, each reporting to a
different' agency and guided by a different approach. There are case
counselors hired and supervised by Shelter, Inc. These counselors often have a
homeless or substance abuse background and serve as part of the shelter staff.
The second group are case managers hired by the Housing Authority or the
Health Services Department and supervised by the Health Services Department.
The case managers have a more extensive educational background and operate
under a different case management philosophy. There are the inevitable conflicts
over turf between case managers and case counselors. The client is often caught
in the middle between two sets of conflicting expectations, or sometimes
manipulates the lack of clear communication between the counselors to defeat the
Program's effectiveness. This dual system of case management promotes
confusion for the client and ambiguity about the mission of the Program.
5. The facilities are reasonably adequate but only one meal a day is provided.
Adequate food is a problem for clients. The Brookside Shelter has two compact
dormitories separating men and women. There is a large multi-purpose room used
for dining, meetings, and lounging. There is a small outside relaxation area.
There are no kitchen facilities. There are a few small offices and limited storage
areas. The North Concord Shelter has two large dormitories, a large multi-purpose
room and extensive storage area. There are small cubicles for offices. Little has
been done to improve the "warehouse" atmosphere. There is limited space for
outdoor relaxation and no kitchen facilities.
One evening meal a day and milk for breakfast is provided through a contract with
the County jail. Most clients complain that the quality and quantity of food varied
from fair to poor. Restaurants and other volunteers donate bread, pastries, etc. for
breakfast. Occasionally, church groups provide a hot meal for dinner, which
clients really appreciate. The absence of kitchen facilities makes it difficult to
store and prepare food for breakfast or lunch.
3
ASSESSMENT OF HOMELESS SHELTER PROGRAM 1N CONTRA COSTA COUNTY OCTOBER 1994
6. There are allegations of arbitrary exercises of power by shelter staff over
homeless clients. It is nearly impossible in retrospect to sort out the details of
specific allegations. In the general sense, however, given the program issues
identified, such incidents of abuse are nearly inevitable. Many of the problems
stem from the structural ambiguities of the program, the dichotomy between the
emergency shelter and the transitional housing missions, and the dual and
sometimes conflicting case management systems. These conditions lead to a
perception of arbitrary action by shelter staff. Lack of training and clear Program
goals, and lack of professional supervision will lead to actual incidences of abuse
of authority.
III. RECOMMENDATIONS:
Although our evaluation of the Shelter Program was not exhaustive, we have developed
enough information to believe that the following recommendations are clearly indicated.
1. The planning for the continuum of homeless programs should address the
needs for emergency services. Many homeless people living on the streets are
not ready, willing, and/or able to comply with the requirements of a case managed
shelter. They simply want a safe, warm place to rest at night. There is a need to
address the delivery of services to this group of people who are still on the streets.
Options for meeting these needs include: An actual emergency shelter, a reception
center, or a multi-service site.
2. The County Administrator's Office should identify the appropriate
professional manager or program within the County to supervise and monitor
the Shelter, Inc. contract. The Board of Supervisors should delegate oversight
to the CAO so that a manager, department, or program would have the flexibility
and authority to work with Shelter, Inc. to implement Program changes. Issues
such as food service should be resolved on a program level. The shelter contract
requires professional support, technical assistance and management/evaluation
oversight. Ongoing professional oversight and evaluation is necessary to identify
and deal with emergent issues and problems. Such oversight allows for continuous
problem solving, appropriate program modification, and professional review,
accountability and quality assurance.
3. Combine the two sets of case managers/counselors into one common unified
team with adequate guidelines, training, and supervision to meet the
challenges of this complex homeless population. The current dual case
management system fosters confusion and conflict. The contract monitor should
work with Shelter, Inc. and the Health Care for the Homeless Team to rapidly
unify the case management program.
4. A continuous training program for direct service and management staff at the
shelters should be developed and implemented. Many of the staff at the
shelters are not professionally trained but offer the value of their experience as
4
ASSESSMENT OF HOMELESS SHELTER PROGRAM IN CONTRA COSTA COUNTY OCTOBER 1994
recovering homeless persons. It is crucial, however, to support their efforts
through appropriate training and supervision that will increase their effectiveness.
5. The Shelter Program management should be reviewed and evaluated on an
ongoing basis by the Shelter, Inc. director and the County contract monitor
to determine its' appropriateness and effectiveness in meeting the daily
challenges and opportunities of this program. Managing a successful
transitional shelter program for homeless persons is a very complex challenge.
The program monitor should work closely with Shelter, Inc. in this process.
IV. CONCLUSION:
The Homeless Shelter Program has clearly provided an important service to many
individuals and has positively affected their lives. We also found even in our brief
investigation many staff who are clearly dedicated and committed. However, there are
a number of structural problems which compromise the ability of the Program to function
at maximum effectiveness. Those structural problems include public ambiguity in the
defined mission of the Program, a dual and often conflicting case management system,
lack of professional oversight,monitoring and consultation from County professional staff,
inadequate training and supervision of some of the staff, and lack of an ongoing program
and quality assessment process. These recommendations address the structural problems
and indicate a method of resolution. We believe that if these recommendations are
implemented, the Program would be even better prepared to improve the lot of homeless
people.
WB:ah
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