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HomeMy WebLinkAboutMINUTES - 07101990 - FC.3 • FC 3 • TO: BOARD OF SUPERVISORS s" L Contra 1 ..i__`: FROM: Finance Committee of �� Costa is s County DATE: July 10, 1990 'q'couK`� SUBJECT: RUBICON/HAWKINS CENTER PROPOSAL FOR SERVICES TO GENERAL ASSISTANCE RECIPIENTS SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION RECOMMENDATIONS: 1. Refer the revised Rubicon/Hawkins Center proposal to the Budget Committee for consideration with the overall General Assistance Program. 2. Direct the Social Services Department to present a plan to the Budget Committee that will enhance and improve the current Interim General Assistance Reimbursement ( IGAR) program. The report should indicate how the Rubicon/Hawkins Center proposal would fit into the plan. 3 . Direct the Social Services Department to continue to work with proponents to clarify and resolve outstanding operational, financial and program evaluation issues. 4. Request the Board of Supervisors to support a similar proposal submitted by Rubicon and the Hawkins Center to the federal government. FINANCIAL IMPACT: The program cost should be offset by increased reimbursements from the Social Security Administration for past General Assistance grants and from costs avoided by shifting potential general assistance recipients to federally financed Supplemental Security Income (SSI ) program. CONTINUED ON ATTACHMENT: _X—YES SIGNATURE: ,�,��_ RECOMMENDATION OF CO Y T RECOMMENDATION OF BOARD COMMITTEE APPROVE low .1 SIGNATURE(S): Cler Tom Torlakson ACTION OF BOARD ON July IO, 1990 APPROVED AS RECOMMENDED X OTHER VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A TRUE X UNANIMOUS(ABSENT ) AND CORRECT COPY OF AN ACTION TAKEN AYES: NOES: AND ENTERED ON THE MINUTES OF THE BOARD ABSENT: ABSTAIN: OF SUPERVISORS ON HE DATE SHOWN. cc: County Administrator ATTESTED /0 /990 Social Services PHIL ATCHEL CLERK OF THE BOARD OF County Counsel SUPERVISORS AND COUNTY ADMINISTRATOR Rubicon Hawkins Center �,� �, vQ�-G�-cs,.� M382 (10/88) BY DEPUTY -2- BACKGROUND: Last year Rubicon Programs Inc. and the Hawkins Center of Law and Services for the Disabled formulated a joint proposal to augment services provided by the Social Services Department. The proposal would expand advocacy services to General Assistance recipients and applicants to secure grants from the federally funded SSI program. Moreover, the proposal provides money management services to persons who have qualified for SSI . Meetings have been held with representatives of the Social Services Department, Rubicon and the Hawkins Center to discuss the proposal. Social Services staff concerns with the proposal were its high staffing costs, duplication of existing services and payment provisions. As a result of these meetings, the proponents modified the proposal by: 1. Reducing the six-month budget request from $138, 062 to $50,000 , with an additional $50 ,000 to be provided by private sources. 2. Limiting the focus of the program by eliminating outreach and initial assessment activities. 3 . Changing the payment provisions to a performance based contract as opposed to a cost reimbursement contract. 4. Utilizing existing Social Services accounting staff and resources to financially administer the money management program in contrast to setting up a duplicate program in Rubicon. In essence, these meetings and the proposal modifications have resulted in a scaled down, more focused program with 500 of the six-month budget financed through private sources. Need for Service The demands for enhanced levels of service for General Assistance clients is apparent. General Assistance costs have tripled in the last five years--from $4 million to over $12 million. General Assistance annual caseloads average 3700. Client population for this proposal would be those designated unemployable with a disability--approximately 600 per year. Social Services has developed several programs to respond to the need for services. The Department currently has a four-person unit who specialized in referral, application assistance and SSI advocacy. The unit was expanded from three to four several years ago. The unit will collect approximately $800,000 in general assistance reimbursement claims from the Social Security Administration this fiscal year. Also, the Department has developed a video tape on the SSI program to orient clients and new staff members. Additionally, the Department has purchased a computer program which will help insure that clients do not receive both General Assistance and SSI benefits in Contra Costa or other counties. Finally, budget reductions over the last several years have prevented staff initiatives to expand advocacy services and establish a money management program. Proposal Attachment A outlines the proposed program, budget and positions. The advocacy portion of the program represents approximately 750 of the budget and is countywide in scope. Attachment B describes the components involved with SSI advocacy, which will be implemented by the Hawkins Center. The money management portion of the program will cost approximately 250, and will be limited to West County, where Rubicon is located. Attachment C explains the money management portion of the proposal. -3- The proposal totals $100,000 for six months, of which 50o would be financed by the County and 50o by private sources. Payment would be on a flat fee, performance basis. After six months, and assuming program success, the County would finance the total program on a flat fee, performance basis estimated to be $200,000 to $250,000 annually. The proponents have also submitted an application to the Social Security Administration for $299, 000. This proposal would provide all the services included in the County proposal plus several other services. Social Security should award grants in October. Cost Reduction/Avoidance The program will reduce and avoid cost in three ways: 1. by increasing reimbursements from the Social Security Administration for interim General Assistance grants provided to clients who qualify for SSI; 2. by reducing the number of clients receiving general assistance in the future by transferring them to the SSI program; 3 . by reducing the number of SSI recipients receiving general assistance-immediate need help, such as housing in shelters and motels, by assisting recipients in managing their SSI benefits. Some general information on computing cost reduction and avoidance capabilities is presented below: A) Average General Assistance Monthly Grant $323 B) Average Supplemental Security Income Grant $646 C) Estimated cost to County by Contractor converting one client from GA to SSI $2300-2500 D) Estimated revenue to County from contractor converting one client from GA to SSI (8 to 9 months . in GA reimbursements) $2500-2900 E) Immediate need costs from SSI recipients Unknown (One survey estimated that 160 of the persons housed in shelters and motels from December 1989 through April 1990 were SSI clients, while 25% were classified as "Potentially eligible. " ) Using available data, the flat fee charged apparently will be offset by reimbursements from Social Security for interim General Assistance payments. The proposed program would need to convert approximately 100 clients from GA to SSI over a year' s period to achieve its target annual budget of $250,000. The apparent financial paybacks of the proposal meet the requirements for the Productivity Investment Fund. However, the guidelines governing the use of the Fund require: 1. All proposals to be sponsored by a County department 2. Provide a one-time only funding for pilot or demonstration programs 3 . An annual request for proposals for 1990-91 funds in October and November 1990. -4- Unresolved Issues The Social Services Department staff continues to have concerns about supporting the proposal. Generally, the Department staff is not convinced of the utility of investing scarce County resource in this manner and in some activities included in the proposal. Also, the Department staff voiced specific concerns with the proposal that are listed below. 1. The legal implications of the program given recent court decisions governing the County' s General Assistance Program. 2. The limitation of the program in providing money management services to West County only. 3 . Bypassing the Department' s policy of utilizing a request for proposal process prior to contracting for services. 4. Areas of overlap in delivery of services such as assisting clients prepare SSI applications. 5. The impact of the Department ' s 1990-91 budget reduction plan, currently being prepared, on the administration of the General Assistance Program. Conclusions The gravity of the General Assistance problem merits a close scrutiny of how the current IGAR program can be improved and how the County can reduce current costs and avoid future costs. While past discussions of this SSI proposal have lessened the Department staff ' s concerns, significant concerns continue to exist. The Department needs to formulate an IGAR improvement plan, assuming additional funding can be secured. The plan should prioritize needs and delineate how best services can address those needs. Also, the plan should indicate how the proposal presented by Rubicon and the Hawkins Center fits into the priority scheme of improved service delivery. The Rubicon and Hawkins Center proposal merits serious consideration. The financial backing from private sources makes the service costs attractive. The performance based contract approach shifts the program risks to the contractor. Representatives from these agencies need to continue to discuss and clarify the service delivery details of the revised proposal with Social Services staff. ATPACIIT= A The Hawkins Center A Non-Profit Corporation Linda Mills-Snyder, M.S.W. Legal and Support Services Attorney at Law for the Disabled Executive Director 2530 Bissell Avenue Richmond, California 94804 Kelly M. Dunn (415) 232-6611 Attorney at Law OVERVIEW Revised Rubicon/Hawkins Proposal for SSI Advocacy and Money Management Services: - Focus only on unemployable class ; - Project Coordinator will evaluate each case assigned to Unemployable category; - SSI eligible cases will be identified; Clients called for interviews; - Legal basis for applying for benefits will be identified and SSI applications filed based. on theory; - Paralegal Case Coordinator will oversee initial and reconsideration application process and case development will follow legal principles ; - Benefits Hearing Attorney will provide legal representation at hearing and/or Appeals Council . Benefits Hearing Attorney will refer clients in need of ongoing money management services to Money Management Team which consists of Conservatorship, Program Fiduciary Accounting Staff and Rubicon Independent Living staff Representative Payees . i iawkins ;Center/Rubicon Programs 4oney Management/SSI Advocacy Program Budget HAWKINS RUBICON CC COUNTY TOTAL 3udget 6 Months CENTER PROGRAMS SALARIES ?roject :Coord. ( .6) (attorney) $11,700 $11,700 3enefits Hearing Attorney $12,000 $12,000 Paralegal Case Coordinator $13, 250 $13, 250 Indep. Living Couns\Money Mgt. $8, 040 $8,040 Fiscal Accounting .Clerk $9 ,500 $9 ,500 kdmin Asst $6 , 198 $3 , 053 $9 , 250 SALARY SUB-TOTAL $43 , 148 $11, 093 $9 ,500 $63,740 BENEFITS F. I .C.A. $3,301 $849 $727 $4,787 S .U. I. $1,514 $389 $333 $1, 904 Workers :Comp $1,068 $527 0 $1, 595 Health Insurance $2,000 $1,350 $1,425 $3, 350 Consultant/Computer System $0 $0 PERSONNEL SUB-TOTAL $51,031 $14,207 $11,985 $75,376 OPERATING Office Rent $0 $0 $0 Utilities $0 $0 $0 Telephone $1,505 $419 $2,222 Office Supplies $1,281 $357 $1,893 Insurance/Bond $271 $75 $400 Staff Travel $542 $151 $800 Office Equipmt $1, 117 $311 $1,650 Printing/postage $1, 185 $330 $1, 750 Client related expenses $846 $236 $1, 250 Medical records & reports $2, 250 $2, 250 Personnel hiring costs $508 $141 $750 Misc. $630 $175 $931 Contingency @ 0% $0 $0 1 $0 OPERATING SUB-TOTAL $10,134 $2, 195- $13,896 Admin Indir @12% $7 ,340 $1, 968 $10,713 TOTAL EXPENSES $68 , 505 $18, 371 $11, 985 $99 , 984 The Hawkins Center A Non-Profit Corporation Linda Mills-Snyder,M.S.W. Legal and Support Services Attorney at Law for the Disabled Executive Director 2530 Bissell Avenue Richmond, California 94804 Kelly M. Dunn (415) 232-6611 Attorney at Law POSITION DESCRIPTION TITLE: Program Coordinator AGENCY: The Hawkins Center of Law and Services for the Disabled, established in 1986 , is a non-profit legal and social support services agency which provides legal representation to applicants seeking Social Security disability and SSI benefits. The Hawkins Center assists applicants with all Social Security procedures necessary for the disability and SSI claims process. The Hawkins Center's attorneys provide legal representation to claimants at hearings before Social Security Administrative Law Judges . . . QUALIFICATIONS: The Program Coordinator: 1 . Is a member of the State Bar in good standing. 2. Has eight year' s experience working directly with clients- in all phases of the . Social Security disability application process ; 3 . Understands administrative law practice and procedures ; 4 . Has legal writing skills and has handled a caseload of 150 clients ; 5 . Has a master' s degree in social work and is licensed in social work to provide counseling services to disability benefits applicants ; 6 . Has four year's experience administering a non-profit legal services agency. ." RESPONSIBILITIES: The Program Coordinator will: 1 . Oversee all aspects of the legal program administration; 2 . Evaluate all cases for acceptance into the program; 3 . Determine appropriate legal theory and strategy for all cases ; 4 . Supervise hearing attorneys , paralegal and clerical staff; 5 . Liaison with Rubicon Programs , Contra Costa County Social Services and other agencies involved in the project; 6 . Provide reports to Contra Costa County regarding program progress ; 7 . Develop procedures with regional SSA office for implementation of the program; 8 . Develop ongoing project funding . The Hawkins Center A Non-Profit Corporation Linda Mills-Snyder, M.S.W. Legal and Support Services Attorney at Law for the Disabled Executive Director 2530 Bissell Avenue Richmond, California 94804 Kelly M. Dunn (415)232-6611 Attorney at Law POSITION DESCRIPTION TITLE: Benefits Hearing Attorney AGENCY: The Hawkins Center of Law and Services for the Disabled, established in 1986 , is a non-profit legal and social support services agency which provides legal representation to applicants seeking Social Security disability and SSI benefits . The Hawkins Center assists applicants with all Social Security procedures necessary for the disability and SSI claims process . The Hawkins Center's attorneys provide legal representation to claimants at hearings before Social Security Administrative Law Judges. ACCOUNTABILITY: The Benefits Hearing Attorney works under the supervision of the Program Coordinator and handles a caseload of SSI applicants at the hearing level of the SSA appeal process . QUALIFICATIONS: The Benefits Hearing Attorney must: 1 . Be a member of the State Bar in good standing ; 2. Have at least two year' s legal experience working directly with clients , preferably in areas of benefit entitlement; 3 . Have an understanding of administrative law practice and procedures with experience representing clients before administrative law judges; 4 . Have strong analysis and legal writing skills and the ability to immediately handle a large caseload; 5 . Have a good understanding of issues related to disability and sensitivity to clients w.i-th physical and mental. disabilities . RESPONSIBILITIES : The Benefits Hearing Attorney will : 1 . Handle a caseload of 150 SSI applicants at the hearing phase of the application process ; 2 . Provide legal representation in administrative hearings before ALJ ' s , including the preparation of written and oral arguments ; 3 . Provide advice and counseling regarding Social Security benefit law to interested agencies and persons ; 4 . Correspond with Social Security regarding qualification and payments of benefits based on statutory regulations ; 5 . Perform other duties as assigned by the Supervising Attorney . The Hawkins Center A Non-Profit Corporation Linda Mills-Snyder, M_S.W. Legal and Support Services Attorney at Law for the Disabled Executive Director 2530 Bissell Avenue Richmond, California 94804 Kelly M. Dunn (415) 232-6611 Attorney at Law POSITION DESCRIPTION TITLE: Paralegal Case Coordinator AGENCY: The Hawkins Center of Law and Services for the Disabled, established in 1986 , is a non-profit legal and social support services agency which provides legal representation to applicants seeking Social Security disability and SSI benefits. The Hawkins Center assists applicants with all Social Security procedures necessary for the disability and SSI claims process . The Hawkins Center's attorneys provide legal representation to claimants at hearings before Social Security Administrative Law Judges. ACCOUNTABILITY: The Paralegal Case Coordinator works under the supervision of the Program Coordinator and handles a caseload of SSI applicants at the initial and reconsideration levels of the SSA appeal process. QUALIFICATIONS: The Paralegal Case Coordinator must: I . Have at least two year's legal experience working directly with clients , preferably in areas of benefit entitlement; 2 . Have an understanding of administrative law practice and procedures ; 3 . Have strong analysis and legal writing skills and the ability to handle a large caseload; 4 . Have a good understanding of issues related to disability and sensitivity to clients with physical and mental disabilities . RESPONSIBILITIES: The Paralegal Case Coordinator will : . 1 . Handle a caseload of at least 150 SSI applicants at the initial and reconsideration phases of the application process ; 2 . Evaluate medical evidence and other information and assist clients with application procedures based on the legal theory of their case; , 3 . Request reports from treating sources based on legal principles governing a given case ; 4 . Prepare written and oral legal arguments for submission to Social Security; 5 . Perform other duties as assigned by the Supervising Attorney. Applying for the position of staff attorney, complete an Application for Federal Employment, attorney adviser,or attorney examiner is a Form SF-171,and present it to one of the loca- simple process,if you have Bar membership. tions listed below. These forrns are available from The Government does not require tests for any Office of Personnel Management(OPM)Job these positions. Using the same type of infor- Information Center or Federal Personnel Office mation for your curriculum vitae or resume, located in major cities of each State. For attorney-adviser and attorney-examiner positions at ORA headquarters: Social Security Administration Office of Hearings and Appeals Division of Human Resources Recruitment and Placement Branch 5107 Leesburg Pike, Room 507 Falls Church, VA 22041 Telephone: (703)756-9824 Administrative Law Judge Positions: Applicants must have practiced as an attorney for at least 7 years. At least 2 of the 7 years must have been in the field of administrative law or in the actual preparation and trial of cases before courts of origi- nal and unlimited jurisdiction. For further information about qualifications and the application and certification process, request the OPM publication, Examination Announcement No. 318, from: Office of Personnel Management Office of Administrative Law Judges 1900 E Street,N.W. Washington, D.C. 20145 Telephone: (202)632-5677 For staff attorney and supervisory staff attorney positions in hearing offices in the following states,call or write to: Social Security Administration Office of Hearings and Appeals Regional Management Officer REGION STATES ADDRESS, PHONE NUMBER Region I Connecticut, Maine, Massachusetts, Room E-310 New Hampshire, Rhode Island J.F. Kennedy Federal Bldg. Boston, MA 02203 Phone: (617) 565-1370 Region II New Jersey,New York, Puerto Rico Room 34-130 JKJ Federal Bldg. 26 Federal Plaza New York, NY 10278 Phone: (212) 264-4036 Region III Maryland, Pennsylvania, Virginia Room 11150, Gateway Bldg. West Virginia, District of Columbia 36 and Market Streets Philadelphia, PA 19101 Phone: (215) 596-6975 Region IV Alabama, Florida, Georgia, Suite 422 Kentucky, Mississippi, North 101 Marietta Tower Carolina, South Carolina,Tennessee Atlanta, GA 30323 Phone (404) 331-2400 Region V Illinois, Indiana, Michigan, Bankers Bldg., 18th Floor Minnesota, Ohio, Wisconsin 105 W. Adams � Chicago, IL 60603 Phone: (312) 353-0567 U.S. Departmen' )f Health and Human Services,Social Security Administration,SSA Publication No.23-110,ICS'443395 DEPARTMENT OF HEALTH lig. HUMAN SERVICES Social Security Administration ,( Refer to: June 18 , 1990 Linda Mills The Hawkins Center 2530 Bissell Avenue Richmond, CA 94805 Dear Ms . Mills : As you know, in July 1989 Karen Sims was the Richmond Branch Manager, and in a letter to you Ms . Sims reported as follows : "According to Social Security population figures for the Richmond area we are under-realizing the number of disabled individuals who may be eligible for Supplemental Security (SSI ) . Raw percentages show 60% of the potentially eligible members of the public are not receiving benefits . " As you know, I was recently hired as the Richmond Branch Manager and have undertaken all duties previously performed by Karen Sims . The Richmond District Office is still very supportive of receiving any and all SSI applications . Specifically, we are interested in obtaining SSI applications including applicants whose disabilities may be "temporary. " The Social Security population figures for the Richmond area continue to reveal a dramatic under-utilization of the SSI benefits program. To meet the needs of a public information initiative supported by the Social' Security Administration, our district office will consider the implementation of procedures that will assist any and all SSI eligibles in filing applications . ' Toward this end, we will work closely with the Hawkins Center in implementing a program for temporarily disabled SSI eligibles who receive General Assistance benefits . Please do not hesitate to contact me about this correspondence . Sincerely, ANI MC DANIEL Richm nd Branch Manager The Hawkins Center A Non-Profit Corporation Linda Mills-Snyder, M.S.W. Legal and Support Services Attorney at Law for the Disabled Executive Director 2530 Bissell Avenue Richmond, California 94804 Kelly M. Dunn (415)232-6611 Attorney at Lav Donald Rector, Chief Administrative Law Judge, Office of Hearings and Appeals, Oakland has agreed to discuss the matter of utilizing legal representation in "unemployable" cases with any individual concerned. He may be reached at (415) 273-7241. ATTAQBMENT B 8. Steps to be taken to Save County Funds The proposed program is designed to remedy many of the financial losses incurred by the county in the opera- tion of its present SSI recovery program. As has been noted earlier in this proposal, county resources are at tunes either needlessly expended or not recovered. The proposed program will lead to savings in county resources in the following ways: L Outreach-The pro osed progr will include outreach services directed primarily towards home- less clients who are already on G eral ' tance but who are also potential SSI eligible individuals.This out- reach will be designed to reach th dreds of county residents that Karen Sims projects should be applying for disability benefits but who ar o The high percentage of these individuals who are receiving General As funds but who are SS ligible eventually be converted from county funding to federal funding.An ancillary benefit of this ou ch and a conversion will be a savings of additional county resources(Le., health and mental heal services) pr y required for these individuals living on GA which will not be re- quired once iheu into a is increased to SS evels or which,if still required,will be paid for by Medi-Cal. 2 Assessment-Initial assessment of each GA recipient will be done by a highly qualified worker who is a trained specialist in Social Security disability requirements. As a result,the tracking of GA recipients into the work program,SSI eligible program or other program(rehabilitation,sheltered workshop, etc.) will be based on a more accurate assessment than is currently performed. This in turn,will result in the placement of each GA recipient into the program which is most likely either to lead that individual to rehabilitation or to the receipt of SSI benefits. Individuals who are properly tracked at an earlier stage will also be removed from county welfare roles earlier. 3. Tracking-Persons who are found eligible for the work program of General Assistance will not be af- fected by the proposed program- Ibis program does create a second track, however, which will place in- dividuals who are neither appropriate for the work program nor for SSI in the proper structure for rehW&ta- tion and eventual removal from General Assistance. These claimants will be placed with the Department of Vocational Rehabilitation, sheltered workshops through Rubicon, in alcohol or drug recovery programs, or in other programs already available which best suit the individual's needs. Currently there are many individuals who may be placed in the county IGAR program who have no chance of winning Social Security benefits due to the lack of documentation of their problems. Even if tracking these individuals to such agencies as the Depart- ment of Rehabilitation is unsuccessful insofar as the individual does not become capable of handling a job,im- portant documentation of the person's disability will be accumulated through this effort.Documentation of un- successful rehabilitation efforts will greatly enhance the individual's eventual chances for receiving SSL 4. Assignment to Appointed Representative - Under the proposed program each potentially SSI eligible GA recipient will be assigned a case coordinator beginning the date the person is determined to be an SSI eligible candidate. The case coordinator will also act as an appointed representative, monitoring the comple- tion of all Social Security application forms, accumulating proper documentation of the individual's claims and insuring that the claims are actually filed in a timely manner. This will result in a measurable increase in the number of SSI applicants who are found eligible for benefits at the initial application phase of the Socia] Security review process. The case coordinator will also be responsible for determining whether each individual is receiving medical andlor mental health treatment that is needed_ Many SSI cases are currently lost by claimants because there is no documentation of their medical problems. if the A-R is able at this early date to counsel the individual about receiving medical attention, not only trill the individual's health potentially mi- prove, but documentation will begin to be accumulated which will Iater issi-st thcindividual in winning hiS or her SSI case. A-TTACHMMU C 9 Money Management It is evident from county homeless statistics that a significant number of current and potential SSI recipients are or will not be capable of successfully managing their money. SSI payments provide an individual with enough resources to pay for basic living needs, including rent,food,transportation and other essentials. For clients in need of money management, however, the$600-$900 monthly check may be inappropriately spent in the first week of the month leaving the client destitute,without lodging and thus requiring constant remediation at the cost to the County. 99% of the clients requiring money management are disabled because of a mental dis- ability. We are proposing a comprehensive voluntary money management system for SSI recipients which will include the two crucial staff units needed to make the program work_ �13i}t?�;i?%i13?i<;�i < ws3i? .. �;;;;vizi,;<;}i;iti-.....•:i{i}aurh�?ii}ii?:i3?t.?:i;i?: i t. .... ,•?'�?.?::?;:'.:<•: . .'..,....��.,., a;?� ` .. .. .. ...