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The following is the complete text of the 1998 evaluation of the Center for Animal Care and Control by
the Humane Society of the United States [Part 6].
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For example, policies should require that all animals be separated in the following manner:
Dogs must always be separated from cats.
Sick or injured animals must be separated from healthy ones.
Puppies and kittens must be separated from adults (unless nursing).
Males must be separated from females in heat.
Dangerous animals must be separated from all others, and the public.
Nursing animals must be separated from all others.
Injured, ill and special needs animals should be isolated from all others.
Wildlife, exotics and livestock must be separated from all others, each other, and from the public.
Note: There has been an antiquated section in the New York City Health Code that prohibits two or
more animals of three months of age or older being in the same cage. For some time, this has forced
the CACC to separate litter-mates and house-mates from each other, which can: a) be extremely sad
and stressful for these animals; and b) contribute even more to overcrowding at the shelters. HSUS
staff recently learned from CACC that this requirement has been rescinded and that CACC staff are
very pleased to now be able to utilize the option of housing litters together.
Behavioral Status
There are currently no established provisions or protocols for routine socialization at CACC facilities,
even for long term holding animals. In addition, there are no adequate facilities (aside from at
Manhattan) for the exercise of impounded animals, although the Staten Island Shelter is making some
headway. But some dogs live in 3'x4' cages for months at a time (during holding) with limited exercise
based on staff availability.
Recommendations: Animals in shelters not only need food, water, and shelter, they also need
companionship. Cats need socialization and comforting, and dogs need handling and exercise. Dogs
need handling, exercise, toys and ways to remind them why it's simply "fun to be a dog." Thought
should go into the development of a "stress reduction" program utilizing specially trained staff (and
volunteers, if possible), and into exploring the possibility for exercise pens at all facilities, perhaps even
on the roof if necessary.
In the case of dangerous dogs, every agency involved needs to be cognizant of the increase in
aggression that often occurs with strict, long-term confinement. This includes the public, the City
administration, the NYPD, DoH, ASPCA and the criminal justice system. If the CACC is forced to hold
animals for extended periods of time, adequate resources for exercise and contact need to be funded
and made available.
General Shelter Medicine
Overseeing the shelter medicine staff and related policies and procedures for the five facilities is one
full-time Chief Veterinarian. Under the Chief Veterinarian, there are two full-time veterinarians and a
number of part-time (per diem) veterinarians, for a total of 132 veterinarian hours per week. There are
nine full or part-time licensed and unlicensed veterinary technicians (Animal Care Specialists) working a
total of 333 technician hours per week.
Shelter animals may be seen by the veterinarian(s) or technician(s) more than once: a) at intake
exams, when medical treatments are given; b) for follow-up evaluations; and c) at the time of
euthanasia, if that is the animal's ultimate fate. In general, the preventive medicine program is very
good, especially given the crowded and antiquated facilities in which the shelters are housed.
There are a limited amount of basic drugs and supplies available in the examination and treatment
areas of the Manhattan and Brooklyn shelters, but these facilities are not equipped adequately to allow
veterinary staff to respond to major trauma cases. There is very little in the way of resuscitation
equipment in the treatment rooms: oxygen, endo-tracheal tubes, intravenous equipment, anesthesia
machine or surgery equipment. The type and quality of supplies we saw (antibiotics, etc.) were
adequate, but there seems to be limited time to actually use them.
The Chief Veterinarian reported that medical care funding is mainly made available for preventive care
(intake exams, vaccination and deworming, feline leukemia testing), basic medical treatment of licensed
stray dogs and animals with owner identification, animals on DoH hold, and animals otherwise in
custody. The HSUS E-Team members were told by veterinary staff that there is currently no specific
budget for the medical and surgical treatment of sick and injured stray animals and wildlife, other than
for animals with possible owners, such as those wearing a license or owner identification. Resources
that are used for treating sick or injured strays are on an "as available" basis, using funds left over from
supplying and equipping the preventive health program. Stray animals with minor illnesses and injuries
are treated with antibiotics, subcutaneous fluids, etc., when appropriate.
When stray animals who are sick or injured enter the shelter during business hours, a veterinarian is
paged or the animal is placed on a veterinarian checklist, depending on the severity of the condition.
Stray animals who are thought to be owned are treated to the best of the ability of the veterinary
technicians and veterinarians on duty. In just the few days that HSUS E-Team members visited the
Manhattan and Brooklyn shelters, we saw many severely ill, injured and/or dying animals enter the
intake and treatment rooms.
There are adequate guidelines for after-hours routine care- isolation of sick animals, treatment of
immobilized NYPD animals, treatment of upper respiratory and skin infections with antibiotics, cleaning
of wounds, etc.
A veterinarian is always on-call after hours for CACC shelters. Sick or injured animals presented after
hours are examined by a licensed veterinary technician, whom attempts to determine whether the
animal a) needs immediate veterinary care (in which case the veterinarian on call is paged); or b) is
stable and can wait until the morning to be seen by a veterinarian. Written protocols are in place, and
staff are trained to err on the side of caution. In addition, technicians are required to fill out forms to
insure that CACC policy is followed in the decision-making process.
In the case of serious emergencies, protocols are in place to provide assistance. A seriously injured
companion animal who is presumed to be owned (such as with a license or other identification) is
immediately transferred to the Animal Medical Center or another 24-hour Emergency Hospital for
treatment or euthanasia.
In emergency situations where an animal is suffering and there does not appear to be an owner,
humane euthanasia services are available at CACC facilities under the advice of the consulting
veterinarian following lost-and-found checks to search for a possible owner. To ensure that strict policy
is followed for emergency euthanasia of stray animals, examination forms are used to document the
condition of the animal and the reasons for euthanasia. Two signatures are required for emergency
euthanasia due to humane reasons.
In addition, protocol includes an examination of the euthanized animal by a CACC veterinarian the
following morning to verify the findings of the technician and to further document the animal's condition
and rationale for euthanasia. The bodies of these animals are held separately from others for the "stray
period" so that they can be identified by owners if the owners wish to look through the dead animals for
their lost pet.
Recommendations: One of the important functions of a municipal animal care and control agency is to
be a safety net for the emergency care of owned and potentially owned injured animals that have
inadvertently been hit by cars, fallen from window ledges, been attacked by another animal, etc.
Given that only a small percentage of healthy animals are ever returned to their original owners
(nationally only 14% of dogs, and 4% of cats), the euthanasia of suffering animals is generally
appropriate in most cases. Staff must evaluate each case carefully, and consider that each animal may
have a potential owner out searching, eventually arriving at the shelter seeking to claim him or her.
Strict protocols should be carefully followed and all staff must make decisions accordingly.
The CACC has the staff and the written protocols in place for handling some emergencies but it does
not appear to be equipped for it with all necessary resources. For example, the treatment rooms should
be outfitted with basic life support equipment, if not with anesthetic machines and surgical supplies. It
would be nice to see CACC facilities acquire the resources, equipment and supplies to be able to treat
any injured stray or relinquished animals (or wildlife) and not just primarily animals who appear to be
owned. Clearly, CACC takes in more animals than it could ever treat, but the availability of this option
might help morale if the staff could see some of CACC's injured animals leaving to get adopted or
perhaps going to another location for definitive medical care and rehabilitation. Protocols would need to
be established, however, to evaluate the merit of treatment options for these animals.
Staffing and Training for Animal Care Specialists
The CACC is lucky to be able to have licensed and license-eligible veterinary technicians on staff.
Many shelters do not or cannot. This gives the CACC an advantage in training and significant leeway
when it comes to having technicians make judgment calls about the medical condition of the animals.
There are comprehensive written materials available for the Animal Care Specialists (Veterinary
Technicians) including an Animal Care Specialist Manual containing sections on such things as disease
recognition and management, treatment protocols, examination and vaccination protocols, and
laboratory protocols as well as current memos from the veterinarians and supplements to department
policy.
HSUS E-Team members did not witness any "hands-on" training of Animal Care Specialist staff, and the
impression is that the veterinarians are perhaps too busy doing their own jobs to spend much time
training and overseeing the activities of the technicians. Some of these staff are currently performing
jobs that are not specifically medical, however, in addition to their veterinary duties. The Chief
Veterinarian, for instance, currently oversees many operational duties, performs administrative tasks,
responds to telephone inquiries, and loses time having to drive from one shelter to the other.
Recommendations: The veterinary and treatment staff are highly-qualified and well trained. Written
materials and protocols are adequate and thorough. Current job descriptions and responsibilities
should be revisited to make the best use of veterinary expertise, and allow for an adequate number of
staff at all times to address animal needs, such as examinations.
Emphasis should be place on regular "hands-on" training and review by the veterinary staff. Special
attention should be paid to protocols determining the scope of a technician's required to make initial
medical decisions and judgement calls. But because of the nature of triage work, training sessions
always seem to get postponed or canceled. While it is understandable that virtually everything takes a
low priority when faced with a severely injured animal, adequate time for training should be formally
scheduled, even if it means paying staff to come in early or stay late. General staff training, such as
with improved cage cleaning and disinfection, can and should be done by operations staff to increase
morale and encourage participation in investing in the large scheme.
NYPD Chemical Immobilization and Transportation of Dangerous Animals
A special unit of the New York Police Department (NYPD) currently handles the removal of animals from
crime scenes or animals who are potentially dangerous and considered a public threat. Currently,
animals are chemically immobilized with Ketamine (a dissociative anesthetic) injected with the use of
chemical capture equipment.
To further restrain animals during transport, these officers often tie the feet and/or mouths of animals
with either wire, binder twine, a muzzle, or duct tape. In addition, these units do not have animal
transportation vehicles, and as a result, animals are currently transported to CACC shelters in the trunk
of a NYPD cruiser. This procedure occurs throughout the year, regardless of the ambient temperature.
Unfortunately, somewhere between 2,500 and 3,000 animals per year come into the CACC shelters this
way. Experienced CACC staff are of the opinion that the vast majority of these animals do not need to
be immobilized, and could be easily handled by persons with expertise in animal handling and the
proper capture equipment (such as nets, gloves and control-poles). For example, the staff told us of
cases where a litter of five week old puppies had all been chemically immobilized, and where a single
cat had received two doses.
In addition, adequate records are not kept by NYPD and there is no standardization of the doses of
Ketamine that are given. Veterinary reports provided to the HSUS show that the CACC is forced to give
many of these animals emergency medical care for: a) Ketamine overdose; b) hypothermia or
hyperthermia; c) self-trauma incurred during the immobilization process; d) self-trauma as a result of
awaking in the trunk; or d) any combination of these conditions. In fact, the CACC has had to create a
formal policy that requires each immobilized animal to be immediately examined as a priority when s/he
enters the shelter.
Recommendations: The HSUS has serious concerns regarding the humaneness of the current
procedures and methods used by NYPD to immobilize and transport dangerous dogs, and strongly
urges the review and modification of this system as soon as possible. CACC and NYPD management
should be aware that in some parts of the country, the current system of restraint and transportation
could perhaps be considered cruelty and a punishable offense.
In addition, the current procedure is a clear waste of NYPD time, money and resources. Police officers
are not trained to identify or handle dogs and cats and wildlife at all, much less dangerous ones. Well
trained, experienced CACC personnel could easily remove dangerous animals from these difficult
situations. In many cases, with the use of animal handling skills, even sedation would not be required.
Note: these animals, once arriving at CACC facilities, are housed and cared for by CACC staff on a
routine basis with no further use of immobilization techniques.
The use of CACC staff trained in animal handling is not only more appropriate but more cost-effective,
at a substantial savings to the City. Although further CACC field staff positions would have to be
developed in order to meet this need, the cost would be minimal in comparison to current funding and
resources allocated. The NYPD's role could then be redirected to assist primarily in serious emergency
situations to: a) provide an immediate response (when necessary); b) to assess the scene; c) contact
the CACC; d) secure the location to protect public safety; e) monitor the situation until CACC staff
arrive; and f) to provide assistance if necessary. When chemical capture is necessary, animals could
be immobilized and transported under controlled conditions in CACC Animal Rescue Vehicles in a
humane, responsible fashion.
WILDLIFE AND EXOTICS
Wildlife Care and Handling
The CACC is currently accepting wildlife because there is apparently no one else in the City who can
provide comprehensive assistance. In New York, wildlife matters are generally the responsibility of the
state Fish and Game Department however this agency usually refuse to accept, house, or care for
individual animals and the public has nowhere else to turn. Occasionally, state Fish and Game officials
will provide euthanasia for injured wildlife, but HSUS E-Team members were told it is generally difficult
to reach someone in authority at these offices. CACC, therefore, routinely rescues and/or accepts
these animals in lieu of allowing them to suffer or die of neglect.
The CACC is apparently working with an Inter-Agency Task Force (including but not limited to agencies
such as the New York State Department of Fish and Game, CACC, ASPCA and the Animal Medical
Center) to determine the needs of the City and county for wildlife care and control. In addition, this
group will work together to determine the roles, resources, preventive measures and funding necessary
to provide a solution to this problem. The results will be interesting and should be very constructive. For
the time being however, CACC facilities and field staff spend a great deal of time reactively responding
to wildlife issues.
Traps are rented to the public at the Staten Island shelter for use in trapping raccoons and skunks, but
there is currently no education of the renter regarding humane trapping and handling techniques.
Though some of the field officers may be skilled at handling wildlife, we were not made aware of any
training of the staff at the shelters in how to handle urban wildlife calls and did not see any written
materials on the subject for distribution to the public.
During the brief visit, HSUS E-Team members saw a large number of incoming raccoons, a few
opossums, and a few pigeons. Regardless of human or animal exposure, The Department of Health
currently requires that all raccoons be euthanized for rabies testing at the New York State Health
Laboratory. Many wild mammals and birds are releasable if deemed healthy. However, there are
currently no staff trained and knowledgeable in wild animal behavior and/or rehabilitation. In addition,
we were not made aware of any organized program for training of staff in wildlife handling, physical
examination, common diseases, triage, rehabilitation issues and sick/injured animal treatment.
There is a small wildlife/exotic ward at the Manhattan shelter but it does not contain a suitable variety of
special caging, feeding equipment and supplies, or written care protocols for the many needs of various
wild animals. We were told that the CACC primarily uses local organizations for the care and placement
of certain species.
While staff appeared to be quite well-intended in their desire to assist orphaned and injured animals,
there were no special protocols for identifying the species, selecting appropriate caging, giving fluids to
correct dehydration, or methods for selecting and feeding appropriate diets.
Recommendations: As people and animals move closer together, the conflicts among them increase.
And as state and federal wildlife agencies lack a committed response acceptable to the public, animal
care and control agencies around the country are being called upon to fill that void.
A recent HSUS survey of 100 local animal care and control facilities found that over half work with
orphaned, injured or "nuisance" wildlife more than 500 times each year. And while most animal shelters
are already overburdened with dogs and cats, the public increasingly asks for--and even
demands--that their local animal shelter "come to the rescue" of orphaned and injured wildlife.
Depending upon specific New York State laws (currently in exploration with State officials), the CACC
may be able to temporarily handle wildlife without burdening themselves with licenses and record
keeping requirements. If legally able to do so, wildlife impounded by the CACC should be given quality
emergency care and then be transferred as promptly as possible to an outside agency.
Yet wild animals have special needs, and caring for wildlife is a specialty beyond the scope (or even
mission) of most municipal animal shelters. In addition, while the rescue and temporary housing of
wildlife are one thing, the field of long-term wildlife rehabilitation is simply another. As part of the
Inter-Agency Task Force, CACC and others should identify well trained wildlife rehabilitation
professionals for long-term care needs.
It would seem in the best interests of all if CACC maintains the role of good Samaritan, rather than to
probe the arena of extensive licensing and permitting. Even to perform this limited function, the
veterinarians and staff at the CACC must be adequately trained and equipped. For example, intake
triage protocols, caging needs, treatment protocols and euthanasia techniques should be developed.
Local licensed rehabilitation professionals could assist with training and mentor CACC staff. It would
also benefit the CACC if the wildlife groups with which it develops a relationship could be responsible
for coming to the CACC facilities to pick up wild animals. The people picking up the birds and other
wildlife should be trained volunteers or staff and they should be able to transport the animals only
under the best of conditions.
Temporary wildlife care is not particularly difficult once protocols are written and the staff is well trained.
Care is unique but based on a premise of routines being performed already--examining, caging,
feeding, treating, placing or euthanizing. Wild animals, however are not dogs and cats. Certain staff
may need encouraging (because of phobias) and still others may need restraint (because of appeal).
In the long term, many urban wildlife problems can be headed off at the front counter with
knowledgeable wildlife education and advice. Training the telephone staff to respond to public inquiries
(including those requesting rescue services) can dispel many myths and greatly reduce the need for
services./44
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FN44/ HSUS Animal Sheltering Magazine, "Shelters and Wildlife" March/April, 1998.
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Exotic Care and Handling
Like most animal shelters around the country, CACC has limited space for the housing of exotic animals
and generally "makes do" depending on the particular species presented. CACC has one ward in
Manhattan for a limited few exotics, but no caging of any substance is available for any larger or difficult
to house exotics. Several exotics were being sheltered adequately at the time of The HSUS visit.
Recommendations: Animal shelters today must house and care for exotic, unusual, and fad animals
including snakes, reptiles, fowl, fish, monkeys, sugar-gliders, and other small mammals./45 Caring for
exotics in shelters presents unique challenges, especially in light of their ever-changing popularity. As
shelters know too well, many are presented in poor condition by previous owners unaware of their
special care needs. In addition, legal ownership of many of these animals is often prohibited by federal,
state, or local law. Careful consideration must be therefore given regarding policy decisions for the
release of any exotic animals for adoption.
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FN45/ The HSUS Animal Sheltering Magazine "Wild Ones: Caring for Wild and Nondomestic Animals in
Shelters," March/April 1997.
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Nonetheless, it appears that housing these types of animals is something that shelters will be struggling
with for years to come. We strongly recommend that shelters carefully study the type and number of
exotic (and other unusual) animals entering and needing care, with an eye toward building or
renovating appropriate space for them somewhere in the shelter.
Decisions regarding the amount of space and the type and sizes of cages and tanks needed will be
also be based on shelter protocols and species: whether any of these animals are made available for
adoption, are only held for a limited stray period, or require extended housing during cruelty
investigations. Some shelters (such as the Houston SPCA in Houston, TX) have dealt with this issue by
taking steps to house a limited few exotics and other pocket pets in an area with a window for public
viewing, but with no actual public contact.
EUTHANASIA
Methods/Techniques
The current methods and techniques of euthanasia in all CACC shelters are consistent with those
deemed appropriate within the 1993 American Veterinary Medical Association (AVMA) Panel on
Euthanasia. Fatal Plus® (manufactured by Vortech® Pharmaceuticals) is the sodium pentobarbital drug
formulation used, and it is considered the standard in animal shelter euthanasia.
Dogs and cats are euthanized with an intravenous (IV) injection, and small puppies and kittens are
euthanized with intraperitoneal (IP) injections. In addition, rodents and other small animals are
euthanized by intraperitoneal injection. According to CACC protocol, intracardiac (IC) injections are not
appropriate for routine use, and is acceptable only for animals who are thoroughly anesthetized.
The CACC uses acceptable methods of sedation and immobilization of animals when necessary prior to
euthanasia. A combination of acepromazine (a sedative) with xylazine (an analgesic and alpha-agonist
anesthetic) are used to effect. Ketamine (a dissociative anesthetic) is also available and occasionally
used. Strict record-keeping protocols regarding drug use and inventory are in place within CACC
Controlled Drug Logs/46 and are in compliance with state and federal record-keeping requirements.
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FN46/ Memo to CACC staff regarding Internal Record-keeping Protocols, Dr. Susan Kopp, January,
1998.
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HSUS E-Team members were given the opportunity to witness the CACC staff performing euthanasia.
As it is, euthanasia can be quite stressful under normal circumstances, and performing this task with
unknown consultants looking over one's shoulder is most certainly not easy. But rightfully, the animals
were given the complete attention of the euthanasia technicians.
The CACC in Manhattan is now fortunate to have a licensed veterinary technician who comes in six
mornings a week to perform euthanasia. In Brooklyn, there are a number of euthanasia technicians who
share this responsibility. In Staten Island, the veterinarian in attendance performs all euthanasia.
The euthanasia we observed was performed adequately, thoroughly, and compassionately. We made
efforts to specifically observe the licensed technician (hired specifically to perform euthanasia), and
found him to be very professional and highly skilled at euthanasia.
An excellent system of checks and balances is in place to prevent errors at CACC facilities. We
observed euthanasia technicians verifying the two required approval signatures and written reasons for
euthanasia. Technicians also compared the identification number on the animal's with the number on
the animal's cage card, and confirmed the physical description of the animal with the physical
description on the cage card. This routine, performed under observation, clearly seemed to be a part of
normal shelter operations.
CACC policy states that "When you euthanize cats, you may use either the cephalic vein, with the
animal in sternal recumbency, or the femoral vein, with the animal in lateral recumbency. If there is any
difficult or urgency, and the cat has not been tranquilized, intraperitoneal administration is
acceptable."/47 On one occasion witnessed, however, several cats exhibited signs of distress while
being restrained for intravenous (IV) injections. In addition, the euthanasia technician had some
difficulty locating a vein for injection. Our presence may have unfortunately played a role in this
instance -- both in the technician's desire to use the intravenous route (because it is CACC's preferred
route), and his inability to quickly find a vein under the pressure of observation.
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FN47/ CACC Euthanasia Protocols within the Animal Care Specialist Manual.
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Recommendations: One of the most critical responsibilities of those in the animal care and control field
is to provide the most humane death possible for companion animals when euthanasia is necessary.
The term "euthanasia" is derived from Greek, meaning "good death." In order to be humane, every
euthanasia technique must result in painless, rapid unconsciousness, followed by cardiac or respiratory
arrest, and ultimately death./48
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FN48/ The HSUS "General Statements Regarding Euthanasia Methods for Companion Animals."
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The HSUS recommends the method that the CACC shelters are using: the injection of sodium
pentobarbital, prepared specifically for use as a euthanasia product, for the euthanasia of companion
animals. This method, when properly performed, has been found to the most humane, safest, least
stressful, and most professional choice by The HSUS, American Humane Association, National Animal
Control Association and the American Veterinary Medical Association./49
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FN49/ "1993 Report of the American Veterinary Medical Association Panel on Euthanasia"
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The CACC should look closely, however, at their recommendations relating to the routes of injections
for adult cats. Although the American Veterinary Medical Association (AVMA), The Humane Society of
the United States (HSUS), and CACC all find the intravenous route of injection as the first choice when
possible and/or appropriate, stress and anxiety for cats is significantly reduced (if not eliminated) by the
use of intraperitoneal (IP) injection of sodium pentobarbital.
Intraperitoneal injection for cats is the new standard in animal shelters, requiring a combination of
minimal restraint and a much more attainable level of skill. In addition, this technique actually takes less
time to administer than intravenous injection, and The HSUS suggests that CACC strongly consider the
use of intraperitoneal injections much more frequently than is currently the case. (See also in this
section "Euthanasia Room /Environment" for more information on this subject.).
As current protocol suggests, animals brought to the euthanasia room who show aggression, fear, or
resistance to restraint are sedated or anesthetized, and CACC staff seem to be doing a good job
implementing this recommendation. Not surprisingly, however, pre-euthanasia sedation itself is an area
where we saw somewhat inconsistent results. In fact, there is a certain amount of controversy in the
shelter community surrounding the appropriateness of each of the various types of pre euthanasia,
chemical restraints and their parameters for administration. In addition, shelter medicine itself is an
emerging field, and new pre-euthanasia drug combinations and techniques are continually being
explored. Our only recommendation is that CACC evaluate protocols routinely to keep pace with
emerging research, opinions, and options.
Euthanasia Room and Environment
The euthanasia rooms themselves deserve special mention. The euthanasia room in the Manhattan
shelter appears quite noisy and full of boisterous activity. Too often, staff members were knocking on
the door, interrupting the technician and handlers, entering to ask questions, and generally coming and
going. In addition, loud announcements over the intercom seemed to cause stress to cats awaiting
euthanasia. The euthanasia room at the Brooklyn shelter was quiet and calm at the time of our visit, but
we were only able to witness euthanasia during a time when the shelter was closed to the public. In
Staten Island, the euthanasia room was small, but functional and secluded, suggestive of a comfortable
euthanasia environment.
Recommendations: The euthanasia room should be the quietest, most respected, least interrupted and
most relaxed room in an animal shelter. Cats and dogs immediately pick up on the ambiance of the
room and the people in it. While they do not know they are about to be euthanized, they do not know
where they are or why. Animals generally will relax and feel more trusting, if the environment is
pleasant, and they are comforted and reassured.
Even the staff's movements themselves will go a long way toward allaying animals' fears -- calm, gentle
slow movements are preferred and do much to calm the animals. If a euthanasia room is noisy to the
point of distraction, the animals will likely respond in kind. They will become difficult for staff to handle,
and the quality of the euthanasia process will go down accordingly.
The HSUS strongly recommends that CACC management address these environmental issues as a
priority. The PA system in this room should be dismantled, and protocols should be immediately put into
place which provide some sort of notification to discourage disturbances. Only in extreme emergencies
should this request be violated. Some shelters use a light (on or off) signal or "Stop" and "Go" signs
outside of the euthanasia room to indicate when it is appropriate to knock on the door or enter. In
addition, the persons performing euthanasia should be exempt from other duties while the euthanasia
process is underway.
CACC management may also want to explore alternative or additional locations for euthanasia at the
Manhattan shelter. There is an "unexamined cat" ward sufficiently out of the way that could be
converted into a euthanasia room, but this location may be too far from the freezer for carcass disposal.
A pleasant, relaxed environment is not only essential for the animals, but for the staff as well.
Euthanasia performed in a calm, soothing environment is also much easier on the people involved,
than euthanasia in a noisy and chaotic environment.
Special note: If intraperitoneal euthanasia is to be used on cats, then a quiet calm environment for cats
is essential. Sodium pentobarbital injected using the intraperitoneal route does take longer to take
effect, but the pharmacology is somewhat out of the scope of this report. Nonetheless, a lack of
external stimulation plays an important role in smooth anesthesia, and the gradual drifting off to sleep.
Cats who are startled or unable to remain quiet may go through an unpleasant period of excitement
and disorientation, discouraging the ultimate success of this technique.
Euthanasia Technicians
New York state law holds specific requirements (in the Agriculture and Markets section of the Health
Code) relating to certification and performance of euthanasia. All staff are required to attend a
certification course (generally sponsored or coordinated by the New York State Humane Association).
We did however, note inconsistencies that led us to believe there are not adequate supplemental
internal training processes within the CACC facilities themselves.
There is routine hands-on training of staff, and written materials on euthanasia techniques are
available. However we were not convinced that there is enough education regarding the social, ethical,
psychological and medical aspects of the euthanasia process. For example, one staff member seemed
unaware of the "time to effect" for intraperitoneal euthanasia.
An additional area that seems to be lacking relates to training in methods to cope with euthanasia
stress and related effects. None of the staff we met with had ever been spoken to about the
psychological stress of mass euthanasia and the need for someone (such as a counselor) to be
available for the staff. In fact, the staff we spoke with in the euthanasia room in Manhattan stated that
they had never considered the subject, although they may not have been comfortable sharing their
feelings with a total stranger.
CACC's general euthanasia policy includes a special section worth noting here:
Euthanasia Protocol: Message to Staff
Euthanasia is the unfortunate reality that faces many animals in shelters. It is the most difficult part of
the job emotionally . . . It is an unpleasant task which must be performed as humanely as possible. This
particular aspect of the job, besides being the most difficult task emotionally, is also the area upon
which your professional skills will be called upon and evaluated most frequently and critically./50
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FN50/ CACC Euthanasia Policy Statement, dated 5/1/98
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Recommendations: To humanely end the life of healthy, unwanted animals requires an exceptional
degree of compassion, skill and emotional stamina. Nonetheless, every staff member, especially one
who performs euthanasia, struggles at one time or another with feelings of conflict, hopelessness,
sorrow, and anger. Nearly all can feel isolated from co-workers that don't perform euthanasia, and from
friends and family that cannot or do not understand. In addition, they must face a public that condemns
them for what they do, yet is frankly responsible for creating the conditions that make euthanasia a
necessity.
CACC's euthanasia technicians perform an incredible service for the people of New York City. Yet, if
staff are not able to look out for themselves, how can they be watching out for each other? The
"culture" of shelter euthanasia at CACC is such that perhaps unwritten social codes discourage
meaningful discussion and the implementation of crucial coping mechanisms./51 If support, coping
mechanisms and counseling are not encouraged openly, the consequences can be serious.
Unfortunately some animal shelters know too well the tragic reality of a staff member's suicide.
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FN51/ Arluke, A. Journal of the American Veterinary Medical Association (JAVMA) "Coping with
Euthanasia: A Case Study of Shelter Culture" Volume 198, Number 7, April 1, 1991.
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It is up to every humane agency to provide preventive support to all staff members (and volunteers),
with access to a professional program for those who need assistance. Counseling should be available
for all employees, not just the technicians performing euthanasia. We strongly recommend that a
definitive arrangement be made and gently presented, which allows access to counseling when and if
needed. In addition to professional counselors, therapists, and psychologists, time spent with other
euthanasia technicians can often offer the best support.
There is no way to overemphasize the importance of having a well-trained, educated, and supported
staff doing euthanasia in a system as large as CACC. The HSUS strongly suggests that CACC
management consider the use of an outside euthanasia consultant. There are seminars given around
the country which address not only methods and techniques, but also societal concerns and coping
with stress. Many instructors specialize in teaching the psychological risks of performing mass
euthanasia, and the ways in which staff can recognize warning signs in both themselves and fellow
employees.
Special Note: As mentioned above, there has been a recent change within the Manhattan shelter to
have an outside person perform euthanasia in Manhattan, six days a week. We understand this was
done in part to reduce staff stress associated with the euthanasia of animals they had developed a
close relationship with. While this new procedure has been met with resounding success, we encourage
CACC management to monitor the effects on this particular staff member. Stepping back as an
outsider, one can clearly see that this person is taking on the bulk of stray animal euthanasia for the
entire City of New York.
Selection Criteria
As mentioned earlier, animals entering CACC facilities are given a status category during the initial
examination and processing. Status levels change, and many animals are able to move "up the ladder"
toward adoption during their holding period. For the most part, euthanasia decisions are based on
current status levels.
Current shelter population is also one criteria that must be considered during selection for euthanasia.
In cases where the cat adoption cages and dog adoption kennels are full, the Adoption Coordinator
goes through the kennels evaluating the animals both already up for adoption and those ready for
placement on the adoption floor. Decisions are then made to select which (if any) animals in the
adoption wards should be euthanized to make room for incoming animals.
At the time HSUS E-Team members visited the Manhattan shelter, it was definitely overcrowded due to
construction at the Brooklyn shelter. There were many banks of cages in the hallways (in the middle of
busy foot traffic) where animals were awaiting intake examinations or merely being housed during their
stray period. The dog kennels, with their double-tiered dog cages, were especially crowded. Many
factors beyond CACC's control (in addition to renovations) play a role in overcrowding.
Recommendations: It is obvious, based on current shelter population levels, that CACC management
and staff are attempting to provide housing and care for as many animals as possible. For many
reasons, CACC's desire to maintain large "adoptable" populations is understandable in light of the
current climate. While the desire to "save" animals is obviously commendable, filling a shelter to
capacity can in the long run have a reverse effect.
CACC is under constant pressure to increase adoptions and "decrease the killing." Public threats,
accusations, and even personal attacks abound. Countless documents provided to The HSUS E-Team
in the form of public comment expressed a philosophy similar to the example listed here:
"In the mean time, CACC executive director Marilyn Haggerty-Blohm, still fails to reinstate a meaningful
volunteer program, create substantial off-site adoptions, or fire the problem employees plaguing CACC.
She and her P.R. flunkie, Kyle Burkhard (former AmeriCares fundraiser and Connecticut resident)
instead concoct sinister skewed statics justifying (in their minds) the 40,000+ animal deaths at CACC
each year as "reasonable" for a City the size of New York. Proof positive that this team is certainly not
working in the best interest of animals -- and must go. We're working on it."/52
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FN52/ Taken from The Shelter Reform Action Committee (SRAC) Home Page,
http://users.tuna.net/srac/Home.html, September, 1998.
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It would be unrealistic to suggest that euthanasia could be stopped at CACC facilities. Given the
dynamics of overpopulation--that the inflow of unwanted animals continues to be far greater than the
number of available homes--what is the most humane way to deal with the surplus animals entering
shelters? The rush to save animals lives should not be at the very expense of those animals
themselves.
The Humane Society of the United States (HSUS) believes that limited-admission animal shelters,
commonly called "no-kill" shelters, can play a helpful role within a community in helping homeless
companion animals find responsible, lifelong homes. In short, an organization that chooses not to
accept every animal can supplement an open-admission animal shelter, but it cannot substitute for one.
Organizations that choose not to euthanize animals also do not accept every animal brought to it.
Moreover, a limited-admission organization's ability to choose not to euthanize homeless animals
depends in part upon the existence of animal shelters that do so. To fail to be forthright about the
realities of pet overpopulation is to create in the public's mind the false and harmful perception that
every animal shelter could choose to end companion animal euthanasia without disastrous animal
suffering resulting from that decision. The acronym CACC, stands for the Center for Animal Care and
Control. CACC is currently called upon, or forced to provide adequate and humane care and
enclosures for animals who have been: relinquished by their owners, found running at large,
abandoned in rental properties, hit by cars, picked up by good Samaritans, trapped in cages,
impounded by the NYPD, quarantined by the NY Dept. of Health, confiscated by the ASPCA, and so on.
The CACC's responsibility, first and foremost, is to provide a safe haven for lost and unwanted animals.
The euthanasia of unwanted animals is a tragic necessity that prevents animal suffering. At no time
should a shelter be asked to forced into (or threatened into) prolonged holding under
less-than-adequate or even inhumane conditions, and the animal populations of the CACC shelters
should continue to be defined by the number of good quality, humane and healthy enclosures.
To determine the appropriate course of action, shelters should consider not only variables such as
health, behavior, age, temperament, appearance, background, history and available space, but must
also address many other questions which include (but are not limited to):
1) Is the animal in pain or distress and is there hope of alleviating this pain to allow for a quality life?
2) What are the prospects for providing this animal with a quality life?
3) Does keeping the animal in its present condition and circumstances present significant health or
safety risks to other animals or people?
4) Given the fiscal and practical limitations faced by the organization, does keeping the animal alive
reduce the ability to care humanely for other animals in need?
--------------------------------------------------------------------------------
The following is the complete text of the 1998 evaluation of the Center for Animal Care and Control by
the Humane Society of the United States [Part 6].
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For example, policies should require that all animals be separated in the following manner:
Dogs must always be separated from cats.
Sick or injured animals must be separated from healthy ones.
Puppies and kittens must be separated from adults (unless nursing).
Males must be separated from females in heat.
Dangerous animals must be separated from all others, and the public.
Nursing animals must be separated from all others.
Injured, ill and special needs animals should be isolated from all others.
Wildlife, exotics and livestock must be separated from all others, each other, and from the public.
Note: There has been an antiquated section in the New York City Health Code that prohibits two or
more animals of three months of age or older being in the same cage. For some time, this has forced
the CACC to separate litter-mates and house-mates from each other, which can: a) be extremely sad
and stressful for these animals; and b) contribute even more to overcrowding at the shelters. HSUS
staff recently learned from CACC that this requirement has been rescinded and that CACC staff are
very pleased to now be able to utilize the option of housing litters together.
Behavioral Status
There are currently no established provisions or protocols for routine socialization at CACC facilities,
even for long term holding animals. In addition, there are no adequate facilities (aside from at
Manhattan) for the exercise of impounded animals, although the Staten Island Shelter is making some
headway. But some dogs live in 3'x4' cages for months at a time (during holding) with limited exercise
based on staff availability.
Recommendations: Animals in shelters not only need food, water, and shelter, they also need
companionship. Cats need socialization and comforting, and dogs need handling and exercise. Dogs
need handling, exercise, toys and ways to remind them why it's simply "fun to be a dog." Thought
should go into the development of a "stress reduction" program utilizing specially trained staff (and
volunteers, if possible), and into exploring the possibility for exercise pens at all facilities, perhaps even
on the roof if necessary.
In the case of dangerous dogs, every agency involved needs to be cognizant of the increase in
aggression that often occurs with strict, long-term confinement. This includes the public, the City
administration, the NYPD, DoH, ASPCA and the criminal justice system. If the CACC is forced to hold
animals for extended periods of time, adequate resources for exercise and contact need to be funded
and made available.
General Shelter Medicine
Overseeing the shelter medicine staff and related policies and procedures for the five facilities is one
full-time Chief Veterinarian. Under the Chief Veterinarian, there are two full-time veterinarians and a
number of part-time (per diem) veterinarians, for a total of 132 veterinarian hours per week. There are
nine full or part-time licensed and unlicensed veterinary technicians (Animal Care Specialists) working a
total of 333 technician hours per week.
Shelter animals may be seen by the veterinarian(s) or technician(s) more than once: a) at intake
exams, when medical treatments are given; b) for follow-up evaluations; and c) at the time of
euthanasia, if that is the animal's ultimate fate. In general, the preventive medicine program is very
good, especially given the crowded and antiquated facilities in which the shelters are housed.
There are a limited amount of basic drugs and supplies available in the examination and treatment
areas of the Manhattan and Brooklyn shelters, but these facilities are not equipped adequately to allow
veterinary staff to respond to major trauma cases. There is very little in the way of resuscitation
equipment in the treatment rooms: oxygen, endo-tracheal tubes, intravenous equipment, anesthesia
machine or surgery equipment. The type and quality of supplies we saw (antibiotics, etc.) were
adequate, but there seems to be limited time to actually use them.
The Chief Veterinarian reported that medical care funding is mainly made available for preventive care
(intake exams, vaccination and deworming, feline leukemia testing), basic medical treatment of licensed
stray dogs and animals with owner identification, animals on DoH hold, and animals otherwise in
custody. The HSUS E-Team members were told by veterinary staff that there is currently no specific
budget for the medical and surgical treatment of sick and injured stray animals and wildlife, other than
for animals with possible owners, such as those wearing a license or owner identification. Resources
that are used for treating sick or injured strays are on an "as available" basis, using funds left over from
supplying and equipping the preventive health program. Stray animals with minor illnesses and injuries
are treated with antibiotics, subcutaneous fluids, etc., when appropriate.
When stray animals who are sick or injured enter the shelter during business hours, a veterinarian is
paged or the animal is placed on a veterinarian checklist, depending on the severity of the condition.
Stray animals who are thought to be owned are treated to the best of the ability of the veterinary
technicians and veterinarians on duty. In just the few days that HSUS E-Team members visited the
Manhattan and Brooklyn shelters, we saw many severely ill, injured and/or dying animals enter the
intake and treatment rooms.
There are adequate guidelines for after-hours routine care- isolation of sick animals, treatment of
immobilized NYPD animals, treatment of upper respiratory and skin infections with antibiotics, cleaning
of wounds, etc.
A veterinarian is always on-call after hours for CACC shelters. Sick or injured animals presented after
hours are examined by a licensed veterinary technician, whom attempts to determine whether the
animal a) needs immediate veterinary care (in which case the veterinarian on call is paged); or b) is
stable and can wait until the morning to be seen by a veterinarian. Written protocols are in place, and
staff are trained to err on the side of caution. In addition, technicians are required to fill out forms to
insure that CACC policy is followed in the decision-making process.
In the case of serious emergencies, protocols are in place to provide assistance. A seriously injured
companion animal who is presumed to be owned (such as with a license or other identification) is
immediately transferred to the Animal Medical Center or another 24-hour Emergency Hospital for
treatment or euthanasia.
In emergency situations where an animal is suffering and there does not appear to be an owner,
humane euthanasia services are available at CACC facilities under the advice of the consulting
veterinarian following lost-and-found checks to search for a possible owner. To ensure that strict policy
is followed for emergency euthanasia of stray animals, examination forms are used to document the
condition of the animal and the reasons for euthanasia. Two signatures are required for emergency
euthanasia due to humane reasons.
In addition, protocol includes an examination of the euthanized animal by a CACC veterinarian the
following morning to verify the findings of the technician and to further document the animal's condition
and rationale for euthanasia. The bodies of these animals are held separately from others for the "stray
period" so that they can be identified by owners if the owners wish to look through the dead animals for
their lost pet.
Recommendations: One of the important functions of a municipal animal care and control agency is to
be a safety net for the emergency care of owned and potentially owned injured animals that have
inadvertently been hit by cars, fallen from window ledges, been attacked by another animal, etc.
Given that only a small percentage of healthy animals are ever returned to their original owners
(nationally only 14% of dogs, and 4% of cats), the euthanasia of suffering animals is generally
appropriate in most cases. Staff must evaluate each case carefully, and consider that each animal may
have a potential owner out searching, eventually arriving at the shelter seeking to claim him or her.
Strict protocols should be carefully followed and all staff must make decisions accordingly.
The CACC has the staff and the written protocols in place for handling some emergencies but it does
not appear to be equipped for it with all necessary resources. For example, the treatment rooms should
be outfitted with basic life support equipment, if not with anesthetic machines and surgical supplies. It
would be nice to see CACC facilities acquire the resources, equipment and supplies to be able to treat
any injured stray or relinquished animals (or wildlife) and not just primarily animals who appear to be
owned. Clearly, CACC takes in more animals than it could ever treat, but the availability of this option
might help morale if the staff could see some of CACC's injured animals leaving to get adopted or
perhaps going to another location for definitive medical care and rehabilitation. Protocols would need to
be established, however, to evaluate the merit of treatment options for these animals.
Staffing and Training for Animal Care Specialists
The CACC is lucky to be able to have licensed and license-eligible veterinary technicians on staff.
Many shelters do not or cannot. This gives the CACC an advantage in training and significant leeway
when it comes to having technicians make judgment calls about the medical condition of the animals.
There are comprehensive written materials available for the Animal Care Specialists (Veterinary
Technicians) including an Animal Care Specialist Manual containing sections on such things as disease
recognition and management, treatment protocols, examination and vaccination protocols, and
laboratory protocols as well as current memos from the veterinarians and supplements to department
policy.
HSUS E-Team members did not witness any "hands-on" training of Animal Care Specialist staff, and the
impression is that the veterinarians are perhaps too busy doing their own jobs to spend much time
training and overseeing the activities of the technicians. Some of these staff are currently performing
jobs that are not specifically medical, however, in addition to their veterinary duties. The Chief
Veterinarian, for instance, currently oversees many operational duties, performs administrative tasks,
responds to telephone inquiries, and loses time having to drive from one shelter to the other.
Recommendations: The veterinary and treatment staff are highly-qualified and well trained. Written
materials and protocols are adequate and thorough. Current job descriptions and responsibilities
should be revisited to make the best use of veterinary expertise, and allow for an adequate number of
staff at all times to address animal needs, such as examinations.
Emphasis should be place on regular "hands-on" training and review by the veterinary staff. Special
attention should be paid to protocols determining the scope of a technician's required to make initial
medical decisions and judgement calls. But because of the nature of triage work, training sessions
always seem to get postponed or canceled. While it is understandable that virtually everything takes a
low priority when faced with a severely injured animal, adequate time for training should be formally
scheduled, even if it means paying staff to come in early or stay late. General staff training, such as
with improved cage cleaning and disinfection, can and should be done by operations staff to increase
morale and encourage participation in investing in the large scheme.
NYPD Chemical Immobilization and Transportation of Dangerous Animals
A special unit of the New York Police Department (NYPD) currently handles the removal of animals from
crime scenes or animals who are potentially dangerous and considered a public threat. Currently,
animals are chemically immobilized with Ketamine (a dissociative anesthetic) injected with the use of
chemical capture equipment.
To further restrain animals during transport, these officers often tie the feet and/or mouths of animals
with either wire, binder twine, a muzzle, or duct tape. In addition, these units do not have animal
transportation vehicles, and as a result, animals are currently transported to CACC shelters in the trunk
of a NYPD cruiser. This procedure occurs throughout the year, regardless of the ambient temperature.
Unfortunately, somewhere between 2,500 and 3,000 animals per year come into the CACC shelters this
way. Experienced CACC staff are of the opinion that the vast majority of these animals do not need to
be immobilized, and could be easily handled by persons with expertise in animal handling and the
proper capture equipment (such as nets, gloves and control-poles). For example, the staff told us of
cases where a litter of five week old puppies had all been chemically immobilized, and where a single
cat had received two doses.
In addition, adequate records are not kept by NYPD and there is no standardization of the doses of
Ketamine that are given. Veterinary reports provided to the HSUS show that the CACC is forced to give
many of these animals emergency medical care for: a) Ketamine overdose; b) hypothermia or
hyperthermia; c) self-trauma incurred during the immobilization process; d) self-trauma as a result of
awaking in the trunk; or d) any combination of these conditions. In fact, the CACC has had to create a
formal policy that requires each immobilized animal to be immediately examined as a priority when s/he
enters the shelter.
Recommendations: The HSUS has serious concerns regarding the humaneness of the current
procedures and methods used by NYPD to immobilize and transport dangerous dogs, and strongly
urges the review and modification of this system as soon as possible. CACC and NYPD management
should be aware that in some parts of the country, the current system of restraint and transportation
could perhaps be considered cruelty and a punishable offense.
In addition, the current procedure is a clear waste of NYPD time, money and resources. Police officers
are not trained to identify or handle dogs and cats and wildlife at all, much less dangerous ones. Well
trained, experienced CACC personnel could easily remove dangerous animals from these difficult
situations. In many cases, with the use of animal handling skills, even sedation would not be required.
Note: these animals, once arriving at CACC facilities, are housed and cared for by CACC staff on a
routine basis with no further use of immobilization techniques.
The use of CACC staff trained in animal handling is not only more appropriate but more cost-effective,
at a substantial savings to the City. Although further CACC field staff positions would have to be
developed in order to meet this need, the cost would be minimal in comparison to current funding and
resources allocated. The NYPD's role could then be redirected to assist primarily in serious emergency
situations to: a) provide an immediate response (when necessary); b) to assess the scene; c) contact
the CACC; d) secure the location to protect public safety; e) monitor the situation until CACC staff
arrive; and f) to provide assistance if necessary. When chemical capture is necessary, animals could
be immobilized and transported under controlled conditions in CACC Animal Rescue Vehicles in a
humane, responsible fashion.
WILDLIFE AND EXOTICS
Wildlife Care and Handling
The CACC is currently accepting wildlife because there is apparently no one else in the City who can
provide comprehensive assistance. In New York, wildlife matters are generally the responsibility of the
state Fish and Game Department however this agency usually refuse to accept, house, or care for
individual animals and the public has nowhere else to turn. Occasionally, state Fish and Game officials
will provide euthanasia for injured wildlife, but HSUS E-Team members were told it is generally difficult
to reach someone in authority at these offices. CACC, therefore, routinely rescues and/or accepts
these animals in lieu of allowing them to suffer or die of neglect.
The CACC is apparently working with an Inter-Agency Task Force (including but not limited to agencies
such as the New York State Department of Fish and Game, CACC, ASPCA and the Animal Medical
Center) to determine the needs of the City and county for wildlife care and control. In addition, this
group will work together to determine the roles, resources, preventive measures and funding necessary
to provide a solution to this problem. The results will be interesting and should be very constructive. For
the time being however, CACC facilities and field staff spend a great deal of time reactively responding
to wildlife issues.
Traps are rented to the public at the Staten Island shelter for use in trapping raccoons and skunks, but
there is currently no education of the renter regarding humane trapping and handling techniques.
Though some of the field officers may be skilled at handling wildlife, we were not made aware of any
training of the staff at the shelters in how to handle urban wildlife calls and did not see any written
materials on the subject for distribution to the public.
During the brief visit, HSUS E-Team members saw a large number of incoming raccoons, a few
opossums, and a few pigeons. Regardless of human or animal exposure, The Department of Health
currently requires that all raccoons be euthanized for rabies testing at the New York State Health
Laboratory. Many wild mammals and birds are releasable if deemed healthy. However, there are
currently no staff trained and knowledgeable in wild animal behavior and/or rehabilitation. In addition,
we were not made aware of any organized program for training of staff in wildlife handling, physical
examination, common diseases, triage, rehabilitation issues and sick/injured animal treatment.
There is a small wildlife/exotic ward at the Manhattan shelter but it does not contain a suitable variety of
special caging, feeding equipment and supplies, or written care protocols for the many needs of various
wild animals. We were told that the CACC primarily uses local organizations for the care and placement
of certain species.
While staff appeared to be quite well-intended in their desire to assist orphaned and injured animals,
there were no special protocols for identifying the species, selecting appropriate caging, giving fluids to
correct dehydration, or methods for selecting and feeding appropriate diets.
Recommendations: As people and animals move closer together, the conflicts among them increase.
And as state and federal wildlife agencies lack a committed response acceptable to the public, animal
care and control agencies around the country are being called upon to fill that void.
A recent HSUS survey of 100 local animal care and control facilities found that over half work with
orphaned, injured or "nuisance" wildlife more than 500 times each year. And while most animal shelters
are already overburdened with dogs and cats, the public increasingly asks for--and even
demands--that their local animal shelter "come to the rescue" of orphaned and injured wildlife.
Depending upon specific New York State laws (currently in exploration with State officials), the CACC
may be able to temporarily handle wildlife without burdening themselves with licenses and record
keeping requirements. If legally able to do so, wildlife impounded by the CACC should be given quality
emergency care and then be transferred as promptly as possible to an outside agency.
Yet wild animals have special needs, and caring for wildlife is a specialty beyond the scope (or even
mission) of most municipal animal shelters. In addition, while the rescue and temporary housing of
wildlife are one thing, the field of long-term wildlife rehabilitation is simply another. As part of the
Inter-Agency Task Force, CACC and others should identify well trained wildlife rehabilitation
professionals for long-term care needs.
It would seem in the best interests of all if CACC maintains the role of good Samaritan, rather than to
probe the arena of extensive licensing and permitting. Even to perform this limited function, the
veterinarians and staff at the CACC must be adequately trained and equipped. For example, intake
triage protocols, caging needs, treatment protocols and euthanasia techniques should be developed.
Local licensed rehabilitation professionals could assist with training and mentor CACC staff. It would
also benefit the CACC if the wildlife groups with which it develops a relationship could be responsible
for coming to the CACC facilities to pick up wild animals. The people picking up the birds and other
wildlife should be trained volunteers or staff and they should be able to transport the animals only
under the best of conditions.
Temporary wildlife care is not particularly difficult once protocols are written and the staff is well trained.
Care is unique but based on a premise of routines being performed already--examining, caging,
feeding, treating, placing or euthanizing. Wild animals, however are not dogs and cats. Certain staff
may need encouraging (because of phobias) and still others may need restraint (because of appeal).
In the long term, many urban wildlife problems can be headed off at the front counter with
knowledgeable wildlife education and advice. Training the telephone staff to respond to public inquiries
(including those requesting rescue services) can dispel many myths and greatly reduce the need for
services./44
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FN44/ HSUS Animal Sheltering Magazine, "Shelters and Wildlife" March/April, 1998.
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Exotic Care and Handling
Like most animal shelters around the country, CACC has limited space for the housing of exotic animals
and generally "makes do" depending on the particular species presented. CACC has one ward in
Manhattan for a limited few exotics, but no caging of any substance is available for any larger or difficult
to house exotics. Several exotics were being sheltered adequately at the time of The HSUS visit.
Recommendations: Animal shelters today must house and care for exotic, unusual, and fad animals
including snakes, reptiles, fowl, fish, monkeys, sugar-gliders, and other small mammals./45 Caring for
exotics in shelters presents unique challenges, especially in light of their ever-changing popularity. As
shelters know too well, many are presented in poor condition by previous owners unaware of their
special care needs. In addition, legal ownership of many of these animals is often prohibited by federal,
state, or local law. Careful consideration must be therefore given regarding policy decisions for the
release of any exotic animals for adoption.
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FN45/ The HSUS Animal Sheltering Magazine "Wild Ones: Caring for Wild and Nondomestic Animals in
Shelters," March/April 1997.
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Nonetheless, it appears that housing these types of animals is something that shelters will be struggling
with for years to come. We strongly recommend that shelters carefully study the type and number of
exotic (and other unusual) animals entering and needing care, with an eye toward building or
renovating appropriate space for them somewhere in the shelter.
Decisions regarding the amount of space and the type and sizes of cages and tanks needed will be
also be based on shelter protocols and species: whether any of these animals are made available for
adoption, are only held for a limited stray period, or require extended housing during cruelty
investigations. Some shelters (such as the Houston SPCA in Houston, TX) have dealt with this issue by
taking steps to house a limited few exotics and other pocket pets in an area with a window for public
viewing, but with no actual public contact.
EUTHANASIA
Methods/Techniques
The current methods and techniques of euthanasia in all CACC shelters are consistent with those
deemed appropriate within the 1993 American Veterinary Medical Association (AVMA) Panel on
Euthanasia. Fatal Plus® (manufactured by Vortech® Pharmaceuticals) is the sodium pentobarbital drug
formulation used, and it is considered the standard in animal shelter euthanasia.
Dogs and cats are euthanized with an intravenous (IV) injection, and small puppies and kittens are
euthanized with intraperitoneal (IP) injections. In addition, rodents and other small animals are
euthanized by intraperitoneal injection. According to CACC protocol, intracardiac (IC) injections are not
appropriate for routine use, and is acceptable only for animals who are thoroughly anesthetized.
The CACC uses acceptable methods of sedation and immobilization of animals when necessary prior to
euthanasia. A combination of acepromazine (a sedative) with xylazine (an analgesic and alpha-agonist
anesthetic) are used to effect. Ketamine (a dissociative anesthetic) is also available and occasionally
used. Strict record-keeping protocols regarding drug use and inventory are in place within CACC
Controlled Drug Logs/46 and are in compliance with state and federal record-keeping requirements.
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FN46/ Memo to CACC staff regarding Internal Record-keeping Protocols, Dr. Susan Kopp, January,
1998.
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HSUS E-Team members were given the opportunity to witness the CACC staff performing euthanasia.
As it is, euthanasia can be quite stressful under normal circumstances, and performing this task with
unknown consultants looking over one's shoulder is most certainly not easy. But rightfully, the animals
were given the complete attention of the euthanasia technicians.
The CACC in Manhattan is now fortunate to have a licensed veterinary technician who comes in six
mornings a week to perform euthanasia. In Brooklyn, there are a number of euthanasia technicians who
share this responsibility. In Staten Island, the veterinarian in attendance performs all euthanasia.
The euthanasia we observed was performed adequately, thoroughly, and compassionately. We made
efforts to specifically observe the licensed technician (hired specifically to perform euthanasia), and
found him to be very professional and highly skilled at euthanasia.
An excellent system of checks and balances is in place to prevent errors at CACC facilities. We
observed euthanasia technicians verifying the two required approval signatures and written reasons for
euthanasia. Technicians also compared the identification number on the animal's with the number on
the animal's cage card, and confirmed the physical description of the animal with the physical
description on the cage card. This routine, performed under observation, clearly seemed to be a part of
normal shelter operations.
CACC policy states that "When you euthanize cats, you may use either the cephalic vein, with the
animal in sternal recumbency, or the femoral vein, with the animal in lateral recumbency. If there is any
difficult or urgency, and the cat has not been tranquilized, intraperitoneal administration is
acceptable."/47 On one occasion witnessed, however, several cats exhibited signs of distress while
being restrained for intravenous (IV) injections. In addition, the euthanasia technician had some
difficulty locating a vein for injection. Our presence may have unfortunately played a role in this
instance -- both in the technician's desire to use the intravenous route (because it is CACC's preferred
route), and his inability to quickly find a vein under the pressure of observation.
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FN47/ CACC Euthanasia Protocols within the Animal Care Specialist Manual.
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Recommendations: One of the most critical responsibilities of those in the animal care and control field
is to provide the most humane death possible for companion animals when euthanasia is necessary.
The term "euthanasia" is derived from Greek, meaning "good death." In order to be humane, every
euthanasia technique must result in painless, rapid unconsciousness, followed by cardiac or respiratory
arrest, and ultimately death./48
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FN48/ The HSUS "General Statements Regarding Euthanasia Methods for Companion Animals."
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The HSUS recommends the method that the CACC shelters are using: the injection of sodium
pentobarbital, prepared specifically for use as a euthanasia product, for the euthanasia of companion
animals. This method, when properly performed, has been found to the most humane, safest, least
stressful, and most professional choice by The HSUS, American Humane Association, National Animal
Control Association and the American Veterinary Medical Association./49
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FN49/ "1993 Report of the American Veterinary Medical Association Panel on Euthanasia"
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The CACC should look closely, however, at their recommendations relating to the routes of injections
for adult cats. Although the American Veterinary Medical Association (AVMA), The Humane Society of
the United States (HSUS), and CACC all find the intravenous route of injection as the first choice when
possible and/or appropriate, stress and anxiety for cats is significantly reduced (if not eliminated) by the
use of intraperitoneal (IP) injection of sodium pentobarbital.
Intraperitoneal injection for cats is the new standard in animal shelters, requiring a combination of
minimal restraint and a much more attainable level of skill. In addition, this technique actually takes less
time to administer than intravenous injection, and The HSUS suggests that CACC strongly consider the
use of intraperitoneal injections much more frequently than is currently the case. (See also in this
section "Euthanasia Room /Environment" for more information on this subject.).
As current protocol suggests, animals brought to the euthanasia room who show aggression, fear, or
resistance to restraint are sedated or anesthetized, and CACC staff seem to be doing a good job
implementing this recommendation. Not surprisingly, however, pre-euthanasia sedation itself is an area
where we saw somewhat inconsistent results. In fact, there is a certain amount of controversy in the
shelter community surrounding the appropriateness of each of the various types of pre euthanasia,
chemical restraints and their parameters for administration. In addition, shelter medicine itself is an
emerging field, and new pre-euthanasia drug combinations and techniques are continually being
explored. Our only recommendation is that CACC evaluate protocols routinely to keep pace with
emerging research, opinions, and options.
Euthanasia Room and Environment
The euthanasia rooms themselves deserve special mention. The euthanasia room in the Manhattan
shelter appears quite noisy and full of boisterous activity. Too often, staff members were knocking on
the door, interrupting the technician and handlers, entering to ask questions, and generally coming and
going. In addition, loud announcements over the intercom seemed to cause stress to cats awaiting
euthanasia. The euthanasia room at the Brooklyn shelter was quiet and calm at the time of our visit, but
we were only able to witness euthanasia during a time when the shelter was closed to the public. In
Staten Island, the euthanasia room was small, but functional and secluded, suggestive of a comfortable
euthanasia environment.
Recommendations: The euthanasia room should be the quietest, most respected, least interrupted and
most relaxed room in an animal shelter. Cats and dogs immediately pick up on the ambiance of the
room and the people in it. While they do not know they are about to be euthanized, they do not know
where they are or why. Animals generally will relax and feel more trusting, if the environment is
pleasant, and they are comforted and reassured.
Even the staff's movements themselves will go a long way toward allaying animals' fears -- calm, gentle
slow movements are preferred and do much to calm the animals. If a euthanasia room is noisy to the
point of distraction, the animals will likely respond in kind. They will become difficult for staff to handle,
and the quality of the euthanasia process will go down accordingly.
The HSUS strongly recommends that CACC management address these environmental issues as a
priority. The PA system in this room should be dismantled, and protocols should be immediately put into
place which provide some sort of notification to discourage disturbances. Only in extreme emergencies
should this request be violated. Some shelters use a light (on or off) signal or "Stop" and "Go" signs
outside of the euthanasia room to indicate when it is appropriate to knock on the door or enter. In
addition, the persons performing euthanasia should be exempt from other duties while the euthanasia
process is underway.
CACC management may also want to explore alternative or additional locations for euthanasia at the
Manhattan shelter. There is an "unexamined cat" ward sufficiently out of the way that could be
converted into a euthanasia room, but this location may be too far from the freezer for carcass disposal.
A pleasant, relaxed environment is not only essential for the animals, but for the staff as well.
Euthanasia performed in a calm, soothing environment is also much easier on the people involved,
than euthanasia in a noisy and chaotic environment.
Special note: If intraperitoneal euthanasia is to be used on cats, then a quiet calm environment for cats
is essential. Sodium pentobarbital injected using the intraperitoneal route does take longer to take
effect, but the pharmacology is somewhat out of the scope of this report. Nonetheless, a lack of
external stimulation plays an important role in smooth anesthesia, and the gradual drifting off to sleep.
Cats who are startled or unable to remain quiet may go through an unpleasant period of excitement
and disorientation, discouraging the ultimate success of this technique.
Euthanasia Technicians
New York state law holds specific requirements (in the Agriculture and Markets section of the Health
Code) relating to certification and performance of euthanasia. All staff are required to attend a
certification course (generally sponsored or coordinated by the New York State Humane Association).
We did however, note inconsistencies that led us to believe there are not adequate supplemental
internal training processes within the CACC facilities themselves.
There is routine hands-on training of staff, and written materials on euthanasia techniques are
available. However we were not convinced that there is enough education regarding the social, ethical,
psychological and medical aspects of the euthanasia process. For example, one staff member seemed
unaware of the "time to effect" for intraperitoneal euthanasia.
An additional area that seems to be lacking relates to training in methods to cope with euthanasia
stress and related effects. None of the staff we met with had ever been spoken to about the
psychological stress of mass euthanasia and the need for someone (such as a counselor) to be
available for the staff. In fact, the staff we spoke with in the euthanasia room in Manhattan stated that
they had never considered the subject, although they may not have been comfortable sharing their
feelings with a total stranger.
CACC's general euthanasia policy includes a special section worth noting here:
Euthanasia Protocol: Message to Staff
Euthanasia is the unfortunate reality that faces many animals in shelters. It is the most difficult part of
the job emotionally . . . It is an unpleasant task which must be performed as humanely as possible. This
particular aspect of the job, besides being the most difficult task emotionally, is also the area upon
which your professional skills will be called upon and evaluated most frequently and critically./50
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FN50/ CACC Euthanasia Policy Statement, dated 5/1/98
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Recommendations: To humanely end the life of healthy, unwanted animals requires an exceptional
degree of compassion, skill and emotional stamina. Nonetheless, every staff member, especially one
who performs euthanasia, struggles at one time or another with feelings of conflict, hopelessness,
sorrow, and anger. Nearly all can feel isolated from co-workers that don't perform euthanasia, and from
friends and family that cannot or do not understand. In addition, they must face a public that condemns
them for what they do, yet is frankly responsible for creating the conditions that make euthanasia a
necessity.
CACC's euthanasia technicians perform an incredible service for the people of New York City. Yet, if
staff are not able to look out for themselves, how can they be watching out for each other? The
"culture" of shelter euthanasia at CACC is such that perhaps unwritten social codes discourage
meaningful discussion and the implementation of crucial coping mechanisms./51 If support, coping
mechanisms and counseling are not encouraged openly, the consequences can be serious.
Unfortunately some animal shelters know too well the tragic reality of a staff member's suicide.
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FN51/ Arluke, A. Journal of the American Veterinary Medical Association (JAVMA) "Coping with
Euthanasia: A Case Study of Shelter Culture" Volume 198, Number 7, April 1, 1991.
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It is up to every humane agency to provide preventive support to all staff members (and volunteers),
with access to a professional program for those who need assistance. Counseling should be available
for all employees, not just the technicians performing euthanasia. We strongly recommend that a
definitive arrangement be made and gently presented, which allows access to counseling when and if
needed. In addition to professional counselors, therapists, and psychologists, time spent with other
euthanasia technicians can often offer the best support.
There is no way to overemphasize the importance of having a well-trained, educated, and supported
staff doing euthanasia in a system as large as CACC. The HSUS strongly suggests that CACC
management consider the use of an outside euthanasia consultant. There are seminars given around
the country which address not only methods and techniques, but also societal concerns and coping
with stress. Many instructors specialize in teaching the psychological risks of performing mass
euthanasia, and the ways in which staff can recognize warning signs in both themselves and fellow
employees.
Special Note: As mentioned above, there has been a recent change within the Manhattan shelter to
have an outside person perform euthanasia in Manhattan, six days a week. We understand this was
done in part to reduce staff stress associated with the euthanasia of animals they had developed a
close relationship with. While this new procedure has been met with resounding success, we encourage
CACC management to monitor the effects on this particular staff member. Stepping back as an
outsider, one can clearly see that this person is taking on the bulk of stray animal euthanasia for the
entire City of New York.
Selection Criteria
As mentioned earlier, animals entering CACC facilities are given a status category during the initial
examination and processing. Status levels change, and many animals are able to move "up the ladder"
toward adoption during their holding period. For the most part, euthanasia decisions are based on
current status levels.
Current shelter population is also one criteria that must be considered during selection for euthanasia.
In cases where the cat adoption cages and dog adoption kennels are full, the Adoption Coordinator
goes through the kennels evaluating the animals both already up for adoption and those ready for
placement on the adoption floor. Decisions are then made to select which (if any) animals in the
adoption wards should be euthanized to make room for incoming animals.
At the time HSUS E-Team members visited the Manhattan shelter, it was definitely overcrowded due to
construction at the Brooklyn shelter. There were many banks of cages in the hallways (in the middle of
busy foot traffic) where animals were awaiting intake examinations or merely being housed during their
stray period. The dog kennels, with their double-tiered dog cages, were especially crowded. Many
factors beyond CACC's control (in addition to renovations) play a role in overcrowding.
Recommendations: It is obvious, based on current shelter population levels, that CACC management
and staff are attempting to provide housing and care for as many animals as possible. For many
reasons, CACC's desire to maintain large "adoptable" populations is understandable in light of the
current climate. While the desire to "save" animals is obviously commendable, filling a shelter to
capacity can in the long run have a reverse effect.
CACC is under constant pressure to increase adoptions and "decrease the killing." Public threats,
accusations, and even personal attacks abound. Countless documents provided to The HSUS E-Team
in the form of public comment expressed a philosophy similar to the example listed here:
"In the mean time, CACC executive director Marilyn Haggerty-Blohm, still fails to reinstate a meaningful
volunteer program, create substantial off-site adoptions, or fire the problem employees plaguing CACC.
She and her P.R. flunkie, Kyle Burkhard (former AmeriCares fundraiser and Connecticut resident)
instead concoct sinister skewed statics justifying (in their minds) the 40,000+ animal deaths at CACC
each year as "reasonable" for a City the size of New York. Proof positive that this team is certainly not
working in the best interest of animals -- and must go. We're working on it."/52
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FN52/ Taken from The Shelter Reform Action Committee (SRAC) Home Page,
http://users.tuna.net/srac/Home.html, September, 1998.
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It would be unrealistic to suggest that euthanasia could be stopped at CACC facilities. Given the
dynamics of overpopulation--that the inflow of unwanted animals continues to be far greater than the
number of available homes--what is the most humane way to deal with the surplus animals entering
shelters? The rush to save animals lives should not be at the very expense of those animals
themselves.
The Humane Society of the United States (HSUS) believes that limited-admission animal shelters,
commonly called "no-kill" shelters, can play a helpful role within a community in helping homeless
companion animals find responsible, lifelong homes. In short, an organization that chooses not to
accept every animal can supplement an open-admission animal shelter, but it cannot substitute for one.
Organizations that choose not to euthanize animals also do not accept every animal brought to it.
Moreover, a limited-admission organization's ability to choose not to euthanize homeless animals
depends in part upon the existence of animal shelters that do so. To fail to be forthright about the
realities of pet overpopulation is to create in the public's mind the false and harmful perception that
every animal shelter could choose to end companion animal euthanasia without disastrous animal
suffering resulting from that decision. The acronym CACC, stands for the Center for Animal Care and
Control. CACC is currently called upon, or forced to provide adequate and humane care and
enclosures for animals who have been: relinquished by their owners, found running at large,
abandoned in rental properties, hit by cars, picked up by good Samaritans, trapped in cages,
impounded by the NYPD, quarantined by the NY Dept. of Health, confiscated by the ASPCA, and so on.
The CACC's responsibility, first and foremost, is to provide a safe haven for lost and unwanted animals.
The euthanasia of unwanted animals is a tragic necessity that prevents animal suffering. At no time
should a shelter be asked to forced into (or threatened into) prolonged holding under
less-than-adequate or even inhumane conditions, and the animal populations of the CACC shelters
should continue to be defined by the number of good quality, humane and healthy enclosures.
To determine the appropriate course of action, shelters should consider not only variables such as
health, behavior, age, temperament, appearance, background, history and available space, but must
also address many other questions which include (but are not limited to):
1) Is the animal in pain or distress and is there hope of alleviating this pain to allow for a quality life?
2) What are the prospects for providing this animal with a quality life?
3) Does keeping the animal in its present condition and circumstances present significant health or
safety risks to other animals or people?
4) Given the fiscal and practical limitations faced by the organization, does keeping the animal alive
reduce the ability to care humanely for other animals in need?
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