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Extracted from Consolidated Report

This investigation was originally published as part of a larger consolidated report containing multiple investigations. View the consolidated PDF for the complete document.

Los Angeles County Grand Jury • 2017-2018

6. Opportunity to Resolve Homeless Issues

44 pages
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Findings 21 findings

F1 Page 176
The Creation and growth of LAHSA and MHIA in Implementation of Measure H Program toward intended goals has progressed in a logical and efficient manner. In 2012 County and city leaders realized significant increases in funds and personnel would be needed to find a solution to the increasing needs caused by the rapid increase in the homeless count. LAHSA was formed as a joint authority by the County and City Los Angeles in 1993 as a result of a lawsuit settlement to coordinate the homeless needs within the County. At that time, there were three cities, Glendale, Pasadena and Long Beach that had previously established organized homeless support services within their jurisdictions. These cities were given the option of continuing to receive funding directly from HUD. Because these cities operate independently, they were able to rapidly implement HUD suggestions in 2012. The result was a continuous reduction in the homeless counts. These three cities, Glendale, Pasadena and Long Beach, have independent HUD coordination and not through LAHSA administration. They have independent Continuum of Care, (LACoC), providing and monitoring homeless service contracts with local nonprofit firms. Because LAHSA was required to coordinate with all other stakeholders and obtain voter approval within the County, homelessness in 84 smaller cities and the City of Los Angles did not receive the level of support needed to address the increasing homeless count. One of HUD’s revised recommendations in 2012 was to establish a new data entry system that would focus more on the progress of individuals, not the service providers. The prior data entry system used a data system control based on services performed by each participating service provider. Another recommendation by HUD was to revise the Coordinated Entry System (CES) to be more community centered in order to enable each homeless caseworker to have access to the services provided in the areas served from a CES location. In 2014 a new Executive Director was hired for LAHSA to begin the necessary restructuring for a massive increase in funding to improve homeless support responsibilities. Also in 2015, Los Angeles County established a new Strategic Authority to plan for what would become the Measure H program. The BOS asked a county employee with 10 years serving the County homeless support needs, to act as Director of the new authority. Exhibit 6 on the following page lists 21 initiatives approved for funding availability projected by MHIA for the FY2017-18, 2018-19, and 2019-20. Eight initiatives designated for LAHSA administrative responsibility are noted with asterisks in the Agency/Department column. 160 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 6 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 161
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Increasing LAHSA staff with qualified personnel has been and continues to be a challenge. Over a three-year period beginning in FY2014-15, LAHSA’s staffing budget increased over 280%, requiring staff to increase from 94 full time equivalent positions (FTE) to 360 FTE positions in FY2017-18. Exhibit 7 shows where additional positions have been added: Exhibit 7: LAHSA Staffing by Department DEPARTMENT FY14/15 FY15/16 FY16/17 FY17/18 Executive 4 4 6 HR/Administrative 2 5 7 Finance 27 47 58 Communications 1 3 3 IT/HMIS 16.5 10 12 Policy & Systems 15.5 30 62 Procurment and performance 32 74 54 Data Management 39 Access & Engagement 35 72 117 Total Full Time Equivalent Staff 94 133 245 358 As part of implementing these staffing increases, LAHSA retained a consultant to assist the agency in examining its organizational structure. LAHSA restructured it’s organization to include the creation of a Policy and System Department and a Procurement and Performance Management Department. The Policy and Systems Department focuses on developing County- wide policies applicable to its service providers related to delivering homeless services. This department is responsible for increasing LAHSA’s role as a systems change agent. The restructuring also resulted in the creation of the Procurement and Performance Management Department section which consolidated multiple functions to create one organizational unit focused solely on developing and managing service provider contracts. As of the time of the CGJ interviews, there were approximately 83 employee vacancies yet to be filled ranging from executive staff positions down to line staff. This hiring challenge is exemplified by the fact that two critical executive staff positions for Chief Program Officer and Chief Financial Officer remain unfilled. LAHSA’s struggle to fill its vacant positions was attributed to two different reasons. First, low unemployment within the region has made hiring quality staff more difficult, especially at the lower levels within the organization. Second, the demand for staff with homeless service sector experience is very high in the region in light of the fact that many County agencies and community-based organizations are also attempting to find qualified staff in response to Measure H funding. Competing for staff in this environment was reported as especially challenging as LAHSA’s salaries do not seem to be as competitive as some of the large County agencies seeking the same talent. 162 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT LAHSA’s hiring process has adopted a two-phased approach. Phase I is focused on filling its most critical positions such as executive staff and managers. To help in this area, LAHSA retained a recruiting firm to assist the agency in filling the CPO and CFO positions. Phase II is focused on supervisorial positions, administrative positions and line staff. LAHSA has been conducting job fairs and continues to post for jobs on its job board. Staffing will likely continue to be an issue in the short-term, but LAHSA officials indicated they believe its efforts will result in the agency being reasonably staffed by the end of this fiscal year, June 30, 2018.
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Ensuring programs success within different Service Planning Areas may warrant more flexibility in allocating funding through CES Lead Agencies in Each SPA to maximize effectiveness. LAHSA has separated the County homeless coordination into eight SPA. The 2017 homeless count showed dramatic variations in SPA homeless count. Monitoring activities and contracts by SPA’s is expected to give advanced indications of what increased service and support efforts are needed. LAHSA is now structured to better coordinate the three-fold funding increase. Exhibit 8 shows the homeless counts by cities and the County in total and as percentage of population: The important comparison is the percentage of total residents compared to the homeless count in each of these areas. Future reports should publish data by SPA’s so LAHSA can better adjust service as needs change. Exhibit 8: 2017 Homeless Count 2015 Jan 2017 Jan Long Beach 2345 1863 490,000 .3 of 1% -21% Glendale 208 168 201,000 .1 of 1% -20% Pasadena 632 575 145,000 .4 of 1% -11% LA City 25,686 34,189 3,900,000 .9 of 1% plus 25% LA County 41,174 57,794 9,800,000 .6 of 1% plus 29% Funding strategies for homeless services is complex as the causes for homelessness are varied. An added layer of complexity increases when attempting to create strategies for a region as ethnically, economically and geographically diverse as the County. The funding strategies for Measure H were approved by BOS and included specific dollar amounts for each strategy area. Some initiatives are subcontracted through other agencies. The eight funded initiatives assigned to LAHSA, are then allocated for each of the eight SPA, defined by the County based on the number of homeless within each SPA determined by the most recent homeless count carried out by LAHSA. The twenty-one Initiatives are budgeted for the first three years. Initiatives funded through LAHSA are more flexible than HUD grants. Field interviews indicate that SPA Lead CES agencies should have more flexibility in the subcontracting process. There was recognition that the initial allocation of funds in a consistent and universal manner allowed dollars to flow out to the communities more quickly. However, some service providers noted that the issues facing the homeless are different depending on the community. Needs can 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 163 differ based upon the type of services that have previously been funded in that community, the existing infrastructure, and the unique nature of the population being served. For instance, while some communities may have a greater need for an expansion of Rapid Re-housing, other communities may have a greater need for Subsidized Housing. As the funding process begins to stabilize, it may be appropriate to allow SPAs to request a tailored funding of strategies that more accurately match the needs of their local population.
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LAHSA and MHIA coordination for distribution of the increased funding available from Measure H tax income has gone smoothly in the initial startup period. LAHSA was able to effectively accelerate the implementation process. LAHSA accelerated the activity for processing all necessary RFP’s to firms that were qualified or had applied to qualify for specific services. Also LAHSA prepared a new staff organization structure to meet the increased level of service that was required. LAHSA prioritized training programs needed to train all new personnel in each department. Efficient support coordination is being provided to all the service providers that also had to ramp up staff for increased homeless services. Planning of funds also covers funds available to other agencies from Measure H to meet the needs of other initiatives needed in the pathway out of homelessness supplied by other agencies. LAHSA receives about two-thirds of the Measure H funds on an annual basis. The CGJ learned that MHIA had done a broad outreach to all service providers as they developed the initiatives. That process included a revised adjustment to determine which initiative had priority for increase in funding in the initial years. MHIA has also reached out to all city organizations in the County in an attempt to have all city administrations participate in the program goals development. While all cities have not yet responded, it is expected that based on the responses to date, MHIA and LAHSA will be able to better coordinate the support programs that are now focused in the local needs of the eight SPA’s. LAHSA and MHIA have constant communication on the various initiatives so that variations of funding needs can be identified and made during the ten year program period. The long term results of this new coordination system and increased funding are expected to show positive results once all the planned activities have been implemented. The training programs established by LAHSA are well structured for a smooth operating process with the ability to adjust as new techniques and technology become available. Issuing service contracts over a three-year period allows service providers to properly provide the increased service levels needed to reach a solution to the expanding homelessness problem.
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All steps for which the MHIA and LAHSA plan for coordination must be understood to properly evaluate the effectiveness of the increased funding Measure H provides. Measure H funding is expected to reduce the homeless count in all SPAs. MHIA and LAHSA are attempting to encourage all 88 incorporated cities in the County to be involved in coordinating their city staff with County and local nonprofit groups to better serve and possibly prevent local homelessness rather than just push the problem to others. Each homeless situation has a different cause with different solutions needed to rejoin the local community properly. There are specific paths and services that can be provided to help each individual or family re-join society. The CGJ has listed and described the objective of 13 steps below. Funding for some steps was not provided through LAHSA but is listed to provide a full 164 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT picture of the homeless services available. Those that are funded through LAHSA have the funding amount for the first two years in bold print to indicate the areas needing the most increase in service support. Outreach: E6 initiative allocation is $19 million in 2017-18 and $27 million for 2018- 19. This service is targeted at homeless groups to inform them of local services available for their specific needs. LAHSA maintains some homeless services staff to perform outreach needs as well as funding CES and LACoC for activities of outreach in all SPA’s. Many service providers with private funding perform this function. In addition to increased support to all the CES and LACoC agencies in each SPA, LAHSA now has staff with specific outreach duties. Many of these employees have experienced homelessness so they can more easily relate to various homeless conditions There are ten outreach teams, (two individuals per team), operating countywide. There is an outreach team assigned specifically to each of the eight SPA. There are also nine teams operating with County law enforcement. Another team is focused on Skid Row. LAHSA now hires ex-homeless to work in their outreach program. LAHSA conducted a job fair to increase their outreach staff which was open to homeless personnel. There were 80 homeless job candidates who attended and 20 candidates were hired. The experience of outreach like this in the past has shown it takes multiple contacts, as many as fifteen or twenty and up to a year in some cases, to motivate the chronically homeless, (persons homeless for a year or more), to demonstrate a willingness to enter the support system. Indications are that this new updated outreach process will encourage the chronically homeless to begin their pathway back to community life. The most recent homeless affected by economic condition are more willing and prepared to accept help from the various programs, once they learn that assistance is available. Avoid Homelessness: A5, pertaining to individuals, has $5.5 million budgeted in FY2017-18 and $11 million in FY2018-19. This new program is available to individuals who are about to be evicted because of their inability to pay rent or because of building demolition. Another initiative added to LAHSA budget is A1, pertaining to families, which provides $3 million in FY2017-18 and $6 million in FY2018-19 for preventing families from becoming homeless. LAHSA contracts out to those service providers qualified to negotiate with landlords, property owners of apartments or motels with vacancies, to accept rent support payments from government agencies. A similar program has been available through HUD to assist a family in paying for housing while they re-establish their ability to be self-supporting. Most individuals and families experiencing difficulty meeting rental obligations are not aware of the support available. Word must reach those in areas where developers are demolishing old housing so individuals and families can receive financial support to find temporary or permanent housing near their job or receive training for jobs available near where they live if they are required to move. Rapid Re-Housing (RRH): B3 of $57 million in FY2017-18 and $73 million in FY2018-19. This initiative is being expanded in LAHSA and has a budget increase. HUD has also put more financial support in their program initiative called “Housing First” to encourage a faster path to permanent housing. Rapid Re-Housing is a model to more quickly place families experiencing homelessness into permanent housing. Now rent and housing assistance, with case 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 165 management services is provided concurrently with moving into temporary or permanent housing depending on what is available. Coordinated Entry System (CES): LAHSA’s budget is $26 million in FY2017-18 expanding further to $35.5 million in FY2018-19. CES is sometimes called the “match.com” of homeless services. The (CES) now streamlines the process of finding housing for those who are homeless. The process is to house the most vulnerable people first. CES has a process for categorizing various populations: 1- Adult-headed households (non-veteran). This is further defined as individuals age 25 and older or non-veteran families with children under 18 with head of household age 25 and older. This also includes non-veteran youth-headed households defined as Transition Age Youth (TAY), that are individuals aged 18-25; unaccompanied minor age 18 or younger 2- non-veteran or families with children when adult head of household is age 18-25 3- Households with Veterans. This is further defined as individuals age 18 or older, or families with children under 18 and adult head of household age 18 or older. The handling of services provided varies if homelessness is chronic, (over 1 year), or recent, under 1 year. All categories defined above are assigned a case worker to assist in the pathway steps needed to reach permanent housing. If there is a mental or physical disability that is determined permanent there are specialized services and perhaps specific housing support needs that can be provided. If the category is determined to have a pathway to independent housing, either self-supporting or continued financial support needed, the pathway to permanent housing is coordinated by the assigned case worker who provides follow-up support services. LAHSA now has a Lead CES Agency in each of the 8 County SPA regions. Emergency Shelters: Measure H initiative E8 has provided LAHSA an increase in funding of $56 million in FY2017-18, plus $69.9 million in FY2018-19. There are various shelter systems and emergency shelters provided to meet specific needs. The HEARTH Act of 2009, (Homeless Emergency Assistance and Rapid Transition to Housing) revised the McKinney-Vento Homeless Act put into effect in 1987. The HUD Emergency Grant System was revised to Emergency Solutions Base Grants. The changes were to improve the number of all shelter categories, by increasing funding needed for assistance in shelters, temporary assistance to prevent becoming homeless. FEMA funds emergency shelters to provide: A Temporary Winter shelters open only during expected periods of inclement weather B Permanent emergency shelter open year round providing temporary stays up to 3 months C Adult shelter for specific emergencies such as female abuse with specific stay limits D Short term stabilization shelter while seeking permanent supportive housing There are many small temporary shelters operating throughout the County. Fifteen are operating in Long Beach alone. The County has prepared a complete winter shelter list for all 8 SPA with instructions where to check in for transportation and leave personal belongings. They are transported back to pick up belongings. 166 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 6 Mobile Hygiene and Safe Parking. As a result of successful pilot programs on hygiene and safe parking programs the following support services are now being established. LAHSA has issued an RFP for safe overnight parking with security and hygiene facilities for those experiencing homelessness that own a properly registered car and have a current driver’s license. These locations have outreach personnel to assist the individual or family to begin the necessary steps on the pathway back to normal community life. There is a pilot program in the City of Los Angeles skid row area which has three trailers to house up to sixty people in a parking lot on Alameda and Arcadia Streets. The site serves only as a crisis way station. Other trailers serve as a shower and laundry station with restrooms. Another trailer serves as a location for caseworkers to offer assistance to homeless individuals and to give them encouragement. The following notice provides details for the Safe Parking process. Access Centers: E14 has $5 million budget for FY 2017-18 and $19 million for FY 2018-19. Drop-in centers have the potential to facilitate engagement of homeless into treatment and back into the mainstream. Access Centers in local communities can offer specific services or recreational activities to families and individuals with their own specific mission. These centers are funded by local nonprofit support groups and can make proposals to LAHSA for specific requirements LAHSA has identified in their area of service. LAHSA is now having 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 167 outreach personnel staff and operate an information center in SPA 4 to guide those looking for shelter, food and hygiene services. Drop in day centers are provided where adults and youth can get off the street for a safe haven. In some areas homeless have sought the public libraries to read the local papers or other items of interest in a safe environment. Any area available should be used to inform both the city residents as well as homeless where the locations are where they can obtain assistance. Exhibit 9 is a sample of handouts explaining SPA4’s new programs staffed by volunteers. Exhibit 9 HOMELESS HELP DESK We are here to assist you in locating Emergency Housing with Food & Hygiene Services 168 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 8 Crisis Bridge: B7 Budget of $13 million for FY 2017-18 and $25.3 million for FY 2018-19. This is a shelter support system providing temporary full housing support for 90 to 180 days while clients are waiting for permanent housing. This was part of the HUD Support Program to provide partial or full rent support to individuals and families to re-enter community life. LAHSA has additional funding under the Measure H Initiative, B7, to provide a safe supportive 24-hour residence to individuals or families while they are assisted as quickly as possible into permanent housing. Sometimes the program is referred to as reserved crisis housing. The client must be referred by a CES Housing Matcher or CES Housing Navigation. Clients must have a priority score which is coordinated by the local CoC. Disability support. This necessary assistance has been provided through various Federal Government programs. The VA has expanded the technology in assisting wounded veterans in entering normal life in their community. Other agencies and hospitals have large private funding to address this need. LAHSA Measure H initiative program does not participate in this service but has awareness of the available service so those needing support can be properly directed. Medical Support. This necessary assistance like disability support is not part of the increased funding of the Measure H initiative program but is a very necessary part of assisting homeless individuals to get the necessary psychiatric and medical support needed. Those operating with Outreach Programs must be familiar with the local services available to guide a homeless person needing medical help. There is a large percent of those in homeless situations because of psychiatric or other medical needs. Drug and Alcohol Rehab program may qualify for Measure H funding if tied to one of the various shelter programs that are funded through LAHSA support services. There are residential rehab programs. There are various programs listed on both the County Department of Health Services (DHS) and the County Department of Mental Health (DMH). Transition Housing. Programs are now structured to reach permanent supportive housing as quickly as possible. Halfway House is also another term used. The normal length varies from 6 months to 2 years. In some cases, residents are required to pay up to 30% of their monthly income toward the monthly rent cost. Any emergency shelter housing that allows their clients to stay beyond 6 months is also classified in this category. The funding is supported by HUD Housing First program. Measure H funds are also provided through DPSS and DCFS plus HACoLA. Job Training. This is one of the final steps to develop the ability for homeless individuals to support themselves in permanent housing. The importance of this step is critical for a person to move off the welfare rolls into full independent support and self-esteem in the community. Unfortunately, HUD has withdrawn funding support for this step in their focus on housing first to rapidly move a person or family into permanent housing with financial support from the federal government. Without proper job training the person will continue to need government subsidies. There are various Job Training programs with nonprofit firms that are quite effective. An example of job seeking assistance in Long Beach is a nonprofit firm that coordinates a program in Long Beach. An office is maintained in the Long Beach Multi Service facility to 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 169 coordinate closely with case workers to learn when a client may be ready for job training. The job trainer provides a 2-week continuous training and motivation program to assist individuals to try entering the job market. Once the trainer believes they are ready, another person on the job support team, teaches resume writing and trains in computer use for writing of resume. Then they arrange for interviews for positions which the person may be qualified. The normal step is to begin with part time employment so that person can take specific training courses for the job and get accustomed to the requirements of being a proper employee. Housing subsidy is provided until the person becomes self-sufficient. Permanent self-supportive housing. This is the final goal; however, medical or physical disabilities may require continued government support. Under specific programs of continuous support, the financial support program varies from three to five years with residents required to pay 30% of their income and subsidized housing is provided by federal programs. In some cases, supportive housing is needed because of age, disability, substance abuse, mental illness. Separate programs serve all these needs and require continued case worker support. Some may have a short path and may immediately move into permanent housing with temporary financial support with the Housing First HUD program. The longer a person is homeless the longer the path needed to bring them into participation in local community life.
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The physical environment of an animal shelter is a key ingredient in the effect on the animals, the public looking to adopt, and the staff that cares for the animals. Design is important in helping to reduce the animal population in shelters. 132 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT The Cat Adoption Area at Palmdale Why Can’t a Dog Be Just a Dog? A study done by researchers in Florida found that “self-identified experts (shelter staff, trainers, veterinarians and others) correctly identified a prominent breed only 27 percent of the time.20 Random breeding results in a population of mixed breed dogs, creating a wide range of behavioral predispositions. For that reason, the ASPCA believes it is important to evaluate and treat each dog, no matter its breed, as an individual. The only apparent conflict with the breed- neutral approach could be a liability issue with certain breeds such as Doberman pinschers, pit bulls, mastiffs, etc. Pet liability insurance is available to protect pet owners, if necessary. If a dog is designated as one of these “insurance restricted” breeds, a DNA test by a veterinarian may be able to counter that designation.21
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Attempts at breed identification on shelter cage cards have resulted in lower adoption rates for all dogs,22 not just for the controversial issue regarding pit bulls. Less than 3% of shelter dogs are purebred23therefore the majority of dogs in shelters are mixed breed. Studies indicate that guessing the parentage of these dogs has consistently been incorrect.24 20 Finch, Liz, “A Rose by Any Other Name”, Best Friends magazine, March/April, 2018, pp. 28-32. Study by Maddie’s Shelter Medicine Program, University of Florida, Gainesville . Ibid. Wynne, Dr. Clive, PhD, animal behaviorist, “Do Dogs Think?”, lecture at Amnnenberg PetSpace, Los Angeles, 1/20/2018 23 Ibid. Ibid. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 133 Mixed Breed Kennel Identification Card - The breed designation is often a guess by shelter personnel. Most dogs are mixed breed and studies have shown that not identifying a specific breed increases adoption rates.25 Meet and Greet at the Shelters The confining nature of the shelter fails to provide the opportunity for animals to become more relaxed and able to exhibit calm friendly behavior, which affects their adoptability. In each case, the simple use of treats by staff and volunteers can train a shelter dog to behave in a more welcoming manner to those approaching the cages. It is also important to help socialize them. For volunteers and shelter staff to spend time in a more pleasant and less threatening environment improves the chances of an adoption.26
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Behaviorists have identified three areas to increase adoptability in dogs: 1) The concept of play and selection of a toy which demonstrates a dog’s willingness to interact with potential adoptees. 2) Exhibiting a closeness or bond with the potential adopter, where the dog chooses to remain next to the adopter when in outdoor areas. 3) The interest a dog will show when a potential adopter approaches the animal. Ibid. Ibid. 134 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Play Yard where potential adopters get acquainted - Setting aside an area for potential adoptees to interact with a shelter animal improves their chances for adoption. Behaviorists have been able to better socialize these animals when they are not kept in the cages all day and night. Shelter Staff It is unfair to demonize a shelter or employee because of the unrealistic goal of “No Kill”, which is actually considered to be a kill ratio of 10% or less. Many individuals and groups seeking to protect all animals go as far as death threats and harassment on social media; actions which are inappropriate and counterproductive. Shelters play a critical role in helping residents kennel their animals during a disaster. As an example, when members of this CGJ inspected the DAS East Valley shelter, it was a week after the Creek fire. These city workers helped shelter dogs, cats, horses and livestock during the emergency.
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People who operate these shelters have proven to be caring individuals and seek alternatives to euthanasia whenever possible. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 135 Examining the Animal Management Software DAS and DACC still use the same aging computer system, Chameleon Beach Software. It was one of the first software products in the marketplace designed for animal-related operations, and according to their website27 it has been on the market for three decades. Both DAS and DACC maintain their own separate databases and the systems are therefore isolated from each other. DAS and DACC have similar complaints concerning the state of their technology, which may negatively impact the overall effectiveness of their “no kill” efforts. This CGJ has been told that there is a “Wish List” to update the software: to make it more agile, responsive and provide better information sooner, to improve collections, shelter operations, and to help management decisions. Though each user’s individual change request for a new updated module may not survive the cost/benefit analysis that normally must justify the expenditure, the 15-20 year old system is inadequate and needs to be upgraded or replaced. A robust, well designed, modern implementation of information systems for both the city and the county for their animal services is an infrastructure investment that is warranted to reduce the number of animals euthanized. Not only could it provide managers with the information to manage shelters and more effectively allocate resources but also provide professionals in the field with good data to find new techniques and policies for animal control. In 2016, the County Auditor- Controller completed a review of DACC’s revenue and collections operations.28 Findings included careless entering of revenue collections by field officers, manual receipts not reconciled to Chameleon, control logs not maintained, receipts not accounted for, lax supervisory reviews of daily manual receipts, etc. Other instances occurred in the billing/cashier department, e.g. unlocked cash drawers, mailboxes that receive payments were not secured and these payments were not noted and not reconciled into Chameleon, cashier’s personal items being kept in cash drawers and signed credit card receipts not secured but left out in the open on the employee’s desk. Recommendations at the time were to address all of these issues. In a discussion with a County senior official, we were told that the Department continues to deal with issues of improper and erroneous collections received and that some areas in the Department were not utilizing the available “modules” in Chameleon to alleviate the problem.
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Lost licensing revenue is, in part, the result of both an inadequate computerized management system, weak controls, and uneven compliance to procedures.29 Licensing The first dog licenses were sold in Los Angeles City in 1872 and cost $1.50 for males and $3.00 for females. By the turn of the century, inspectors were going door to door collecting the now hefty sum of a $2.00 license fee and levying fines on any unlicensed animals. Much revenue was brought into the city, though drastic action was taken to eliminate the strays. It is estimated that over those several years, about 5,000 dogs were collected and approximately 4,000 were destroyed.30 27 https://chameleonbeach.com/products/chameleon 28 County of Los Angeles Department of Auditor-Controller, Revenue and Collections Review, 2/1/2016 29 Meeting with senior official at LA City Animal Services 30 Supra, see note 5 136 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT In 2003, the Los Angeles County Department of Auditor-Controller reviewed the Department’s procedures and practices for collecting animal license fees and penalties.31 At that time, the County used a contractor to mail approximately 300,000 renewal notices and collected $7.9 million annually. That review addressed some shortcomings with the management reporting systems and made recommendations. The addressed shortcomings were especially related to license billing and collections. The report made recommendations, but the CGJ found some areas of implementation still lacking e.g., the Chameleon system was to be replaced because it failed to provide adequate reports to management. Most billing and collection monitoring was only being used to address renewals due annually, but there was no feasible way to identify and monitor new pet owners whose pets were not yet licensed. Unfortunately, the Downey shelter still used a paper monitoring system. We also were told compliance varies by locale as well, e.g., North Los Angeles County is less compliant with licensing, spaying and neutering requirements, etc. than the South County.32 In 2014, DAS was directed to expand its licensing through veterinarian notifications.33 The results of their routine follow ups on non-responses have not been effective in generating revenue or creating a comprehensive database for collections and records on the animal population.
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The City believes that less than 30% of dogs and significantly fewer cats are currently licensed. Rabies Vaccination Reporting The Los Angeles County code, specifically Title 10.20.25034, mandates veterinarians to report rabies vaccinations to the proper jurisdictional agency’s Director. The City of Los Angeles has a similar statute in Los Angeles Municipal Code 53.53.35
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The Los Angeles City and Los Angeles County veterinary industry is required to forward notice of all rabies vaccinations to the Director of local Animal Control Services and the Director of DACC respectively; this is not being done. A Disconnect The initially stated reason for non-compliance by vets and their staff was ignorance of the law. We were told by the veterinary offices we surveyed that they were required to report only instances of dog bites or communicable diseases and that rabies vaccination information and certificates were given only to the pet owner, who would then be responsible for obtaining the pet’s license. One veterinarian told us that many owners would protest any reporting of rabies vaccination information to the appropriate agency, mainly to avoid “being on the books” and thus being responsible for the cost of a license and yearly renewals. If a veterinarian insisted on 31 Los Angeles County Auditor- Controller, Animal License Fee Collection Review, 2003 32 Meeting with senior official at DACC 33 Memo from Brenda Barnette to City Council, c/o Office of the City Clerk, dated 8/13/14. Council File: 14-0600-S7 34 Los Angeles County Code §10.20.250 covering the unincorporated territory, plus 47 contracted cities minus those cities that may have their own regulations. Los Angeles Municipal Code, Chapter 5, Article 3, Section 53.53 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 137 reporting, the client might move on to a veterinarian who would be less willing to comply with the law and therefore, a customer would be lost.
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A random sampling of 5 private veterinarians in downtown Los Angeles, 2 in the Los Angeles County Area, and a phone conversation with a California veterinary advocacy organization found that the percentage of veterinarians complying with this mandate was zero. Benefits of Compliance with Rabies Vaccination Reporting The CGJ found both DAS and DACC services such as licensing, rabies vaccination reporting, revenue collection, policy implementation and compliance with regulations need improvement. This would address two constraints against better animal service operations: lack of funding and understaffing. Compliance would allow for easy follow up of services: licensing, micro-chipping, spay and neutering of animals four months or older, and even allowing veterinarians to complete license applications. In fact, a city ordinance authorizes veterinarians to sell licenses.37 The issue of jurisdictions between City and County animal services can easily be resolved by contacting the enforcement agency. If the DACC and DAS identified unlicensed dogs and their owners by cross-checking the data on the canine vaccination reports, this would be an opportunity for increased revenue. The County would now have a record of these owners. The statistics being reported now appear to be coming mostly from veterinarians employed by or contracted to shelters.
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If the existing Chameleon data system, which the County launched 15 years ago and the City 20 years ago, was able to process the data from private Los Angeles veterinarians, the licensing and oversight of animal care and control would be considerably improved. It would also enable necessary follow-up for issues of population control with spay and neuter programs and increase the Return to Owner (RTO) statistics of pets because more pets would be micro-chipped. Cat Euthanasia “From our perspective, the cat has everything figured out. Our role really is managing their ability to reproduce.” - John Cicirelli, Director of San Jose Animal Care and Services The life of the feral cat is full of risks that impact their lives and their euthanasia rate has remained high. In Los Angeles County, it approaches 60%.38 These numbers are on the rise and require active participation from all community partners; government, non-profit coalitions, and the public. A program for licensing cats may present an opportunity to help control the 36Phone survey taken by CGJ, March, 2018 37 Los Angeles Municipal Code 53.15.4 (Title and Section Amended by Ord. No. 18.882, Eff. 10/31/11) 38 “End of Year Message”, Los Angeles Department of Animal Control, informational booklet 138 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT increasing number of cats being euthanized. The City of Los Angeles licenses cats only on a voluntary basis. An overwhelming animal control burden has fallen on local governments to implement measures to control free roaming cat populations. This has a significant impact on public and animal health, due to the various diseases which are transmittable between animals and from animals to people.
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There is a higher euthanasia rate among cats compared with dogs. Only Los Angeles County has begun the mandatory process of licensing cats.39 TNR is Halted in the City of Los Angeles Trap Neuter Release (TNR) is a program advocated by those seeking to reduce cat populations through the neutering and spaying of feral or community cats. “In 2008 … a lawsuit was filed against the City of Los Angeles demanding that it refrain from implementing TNR until a review of environmental implications could be completed.”40 This was followed in 2010 by an injunction filed against the City over its TNR program. This injunction has tied the hands of DAS and many other organizations from the practice to release spayed and neutered cats back to their prior environment. Our interviews with shelter personnel seem to indicate that all other shelters are waiting for the resolution of the injunction. Feral and Community Cats Area - Shelters have few options other than euthanasia in dealing with feral, stray or unsocialized cats. The TNR conflict arises over the issues of animal welfare, public health and the impact on the indigenous species (birds, reptiles, other mammals, etc.). This injunctive climate has limited all 39 Los Angeles County Code §10.20.030 40 The Urban Wildlands Group, Inc. v. City of Los Angeles, et al 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 139 animal control agencies from efforts to reduce the feral and community cat population for fear of legal action. City and County shelters are given no effective option other than to euthanize the increasing “stray” cat population in the community. It is essential to resolve this issue and allow for the gradual reduction of this portion of the feline population thru the Trap Neuter “Return” Program and help eliminate the need to kill otherwise healthy cats. Although a controversial issue, veterinarian Dr. Julie Levy was optimistic of its success in a city like Los Angeles. Her 2003 study “found that a long-term TNR program, coupled with aggressive adoption, can help reduce stray and feral cat populations. However, TNR can fail as people begin abandoning unsterilized cats in the colonies.”41 Though her study took place at the University of Florida, she noted, “Southern California is a lot like Florida in that both share a mild climate that facilitates successful cat reproduction, sensitive wildlife areas, rapid human population growth and development and a growing public commitment to environmental protection and animal welfare.”42 Community cats may be cared for by an individual who licenses and accepts responsibility for the cats and acts as a caretaker for the colony. People for the Ethical Treatment of Animals (PETA), has suggested establishing a Return program that would require a cat habitat which would contain the cat population and provide for routine immunization, care and feeding. Los Angeles County Department of Public Health (LACDPH) needs to be more involved in addressing this and other public health issues.
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An existing injunction against DAS’ Trap, Neuter, and Release program would require an expensive ($1,300,000) Environmental Impact Report be completed by the City of Los Angeles, $400,000 of which still remains to be funded before the injunction can be lifted.43 41 Fox, Hayley, “Cat Fight”, LA Weekly, April 3-9, 2015, 42 Ibid. p.14 43 Interview with City senior manager 140 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT The Euthanasia Room with disposal barrel for cats at a County shelter - In every shelter there is a euthanasia room, the final stop for animals that are not claimed, adopted, or fostered. Hiring and Staffing “We are committed to the belief that no one organization…can achieve the goal of saving the lives of healthy and treatable animals alone, that we need one another, and that the only solution is to work together.” -“Guiding Principles”, The Asilomar Accords County shelters are understaffed and the problem seems to be exacerbated by the long hiring process, sometimes as long as six months. Sworn field officers are vetted almost as comprehensively as police officers and there appears to be no consistent process of certification. This hiring delay is consistent with most County Departments and there does not appear to be any plan to initiate a fast-track system to fill vacancies when they occur. This CGJ were told a training module is in development in the County.44 City shelters fare no better as they are losing 2-3 employees each month due to termination, transfers or retirement. They would need 20-30 new hires per year just to maintain current levels of operation with more hires needed for optimum operation.45
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The County’s hiring process needs to be addressed. It is typically slow in filling vacancies and seems unable to streamline the process, to maintain a continuous flow of needed trained employees. Interview with senior County manager 45 Interview with City Animal Services middle manager 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 141 Shelter Animals and Juvenile Probation Camps A popular and effective program at the Challenger Probation Camp allowed the youth there to “intern” at the adjacent County animal shelter in Lancaster. Juveniles worked with animals which helped to improve the behavior of both. The probationers learned the responsibilities of caring for a dependent animal and the animals became socialized and better prepared for adoption. Unfortunately, the program was abruptly canceled for reasons unclear. However, the CGJ found that management at the Camp Scott facility for girls indicated they might be open to a similar program.46
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It is important that there be opportunities for initial and ongoing training and the development of internships. Contract Cities – “The Past” “DACC’s operating Budget is not fully offset by contract city revenue and general fund allocation.”47 DACC provides various animal control services for its 47 contract cities. The contracts with each city note the specific types of services that DACC will provide, the rates to be charged, and at the end of each month, DACC sends an invoice. The Auditor-Controller Review of 2014 noted that in the majority of cases (84%), services to the cities were rendered before contracts were signed and in 16% of contracts, signatures were not dated causing an inability to determine “if the contracts were fully executed timely” (sic). The review also noted problems with billing errors, no documentation of supervisory review, and “insufficient supporting documentation in calculating the quantities of services provided to the contract cities based on Chameleon reports.”
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The County has indicated that there is a deficit in the amount collected from contract cities and the cost for providing services. Phone interview with camp manager 47 Interview with Senior DACC official 142 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Contract Cities – “The Future” Although now apparently corrected, there were no initial charges for medical services (including intake evaluations) and DACC anticipated an average holding period of five days, later determined to be ten days, thereby doubling that cost. A reevaluation by DACC of Los Angeles County’s current contracts with contract cities identified the problem and they are now more realistically allocating costs for services. DACC’s expected result will be an additional $10 million/per year, after a gradual yearly increase during the next six years. Although this benefits the contract cities, it prolongs a significant deficit for the County. CGJ’s investigation noted that there are still problems in the County receiving the optimum amount of revenue from some of these contract cities for services rendered. This matter is to be addressed by the County in the near future. These contracts are pending renewal for 2018.
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As a result of prior miscalculation of costs, there will be an increase to the Contract over the next 6 years. Communication Breakdown The CGJ tried unsuccessfully to access low cost spaying and neutering services for the public, specifically the County contracted service, SPAY4LA. This is a fully equipped mobile spay and neuter clinic that serves certain areas of LA County, e.g., Bell, Cudahy, Inglewood and 44 other contracted cities. In March, the CGJ attempted to call their listed phone number (1-888-772- 9452), and a recording led us to another number (1-800-772-9452) which was called and which led back to the first number. We reported this problem to County senior management and the phone tree system has since been changed. Unfortunately, the system now leads residents to City animal services or to County animal services in Long Beach. The latter number may be a costly call for the low-income residents for whom this service was intended. A message was left at the Long Beach number but so far, there has been no response. The concern is that even when the public is prepared to do the right thing, like spaying and neutering their pets to help decrease the euthanasia rate, they cannot rely on a system which goes “round and round” in an endless loop. Furthermore, even when the matter is supposedly corrected, there is no timely response to a resident’s message. This may be a single instance of a “glitch”, however, we fear the inefficiency of communications between governments, non-profit coalitions, and the public may be more symptomatic. We asked City and County if they share information and meet regularly to compare best practices. They do not seem to communicate enough for the benefit of both agencies and the public.
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The public wants to talk with a person, or be able to leave a message and have timely follow up. If a telephone number fails to connect with the services desired, people will hang up and not take needed action. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 143

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