--------------------------------------------------------------------------------
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 7].
--------------------------------------------------------------------------------
ADOPTIONS
General
The greatest impression the members of The HSUS E-Team received regarding adoptions is the incredible
priority it holds within the CACC, and The HSUS Evaluation was initiated in a desire to improve this program.
But perhaps most revealing was the way in which future plans and renovations have been (and continue to
be) developed with a focus on increasing adoptions.
For example, the layout and cage design for the Brooklyn and Manhattan shelter renovations have been
prioritized to increase capacity as well as to allow for fluid holding arrangements. Currently, cages are fixed
and designated between animals up for adoption and those who are not or never will be. Additional plans
have been created to make the adoption space more inviting to the public.
In the future, plans call for mobile cage units that can be transferred to adoption areas as needed. This is to
ensure that more animals can be displayed as soon as their holding period is up and they are ready for
adoption.
There is a fear amongst staff that if animals are not moved to the adoption area rapidly, they will become
unadoptable due to exposure to disease. But since the stray period is only two days in New York, and
animals are vaccinated on the day of impound, many of the adoptable dogs and cats are in and out of the
shelter before they really have a chance to acquire or develop any symptoms of disease. Currently
infectious diseases do not seem to significantly impact the operations of the shelter, the adoption program,
or the animals themselves.
As stated earlier, the "euthanasia related" criticism that the CACC has received weighs heavily on all levels
of staff, not just the euthanasia technicians. For some members of CACC management, increasing
adoptions has become the answer to decreasing euthanasia and therefore the intense criticism of the
public. Great reliance has been placed on adoptions to the point where we are concerned that objectivity
may be impaired. Currently, public pressure is sending a clear if subliminal message that quantity is to be
valued above quality.
Current Status
In spite of the great importance placed on this one area, the current adoption program is inadequate,
though not for lack of effort. The philosophy of increasing quantity of adoptions is being emphasized without
provisions for the proper tools to ensure quality. However, the newly hired adoption coordinator appears to
have a sense of the current program's weaknesses, in addition to future plans and program goals.
Unfortunately, since starting, she has had little opportunity to focus specifically on adoptions. Because of
shelter renovations, her time has been most spent assisting at the Manhattan shelter, which is operating
under a 33% increased volume. The Manhattan shelter has also been undergoing substantial staff changes.
We recognize that this has occurred out of necessity and note that in some ways it could be beneficial. For
the Director of Adoptions to be familiar with all aspects of CACC operations can further guide her in her
assessment of its future. But unfortunately, in the meantime, the adoption program is moving full steam
ahead without the benefit of her guidance or expertise.
Staffing
In addition to the Director of Adoptions, each shelter has an Adoptions Coordinator. Brooklyn and
Manhattan have Assistant Coordinators who are scheduled five days a week. There are two designated
service representatives who handle adoptions in Manhattan and one part time in Brooklyn. At the other
three shelters all staff participate in adoptions. There is also the new Special Adoptions Coordinator
position, and a part time Spay/Neuter Coordinator for Manhattan. The director hopes to soon add two
additional counselors and have assistant coordinators seven days a week.
The increase in staffing levels dedicated to this program is commendable, but there is no doubt that more
staff are necessary to handle the volume of adoptions the CACC is pushing for and is pushed for. Currently,
these few individuals have to handle thousands of adoptions a year. To do so includes helping to match
owners with the right pets, screening and qualifying responsible owners, counseling and behavior
assistance, processing paper work, handling calls about the adoption program, providing follow up services,
overseeing foster and rescue programs, coordinating satellite adoptions, and helping to manage the
make-up of the adoption ward.
A training program will be necessary, designed to instruct staff in adoption protocols and counseling. The
director plans to institute a two-week adoption counselor training program, and consulted with HSUS staff for
suggestions relating to components. In the meantime, there is a noticeable uneasiness with the
effectiveness of current adoptions.
The Adoption Process
We were given the greatest insight into the program at the Brooklyn shelter. A lot of the "right" steps and
implements are in place, such as a pre-adoption screening with standard questions, reference checks, and
housing checks. Counseling does occur throughout the decision-making and adoption process.
All animals adopted are vaccinated for rabies and have been given a health examination. Microchipping of
all adopted animals is a good feature of CACC's adoption program. Animals at the Brooklyn shelter more
than 3.5 months of age are held for sterilization prior to leaving the shelter, but at the other shelters, this is
not yet possible.
Brooklyn appears to have the most developed and active adoption program, although none are
comprehensive or serve as a model. For example, efforts to follow up with adopters are often met with
complications. While follow-up records at the Brooklyn shelter are kept in a manual log book, this type of
system does not occur at the other shelters. While the philosophy of the CACC is that its relationship with
the adopter does not end at the time of adoption, there are currently not enough staff capable of handling a
responsible follow up program.
The ability of the current staff to serve as knowledgeable counselors and advisors also comes into question.
While many of the staff are well-meaning, they lack access to the training resources needed to be effective.
As a result, it appears that paperwork dominates the process, and that minimal meaningful counseling and
advice is given. In addition, there seems to be great frustration over certain members of the staff who were
uninterested in learning the extra skills required to make them effective counselors.
Recommendations: While immediate in its impact, adoption programs alone are not the only (nor necessarily
the most effective) means to reducing euthanasia. CACC is not only
limited by the number of available and appropriate homes in the communities it serves, but also by
competition from alternative sources for companion animals within the City.
The purpose of an adoption program, whether conducted by a private animal protection agency or a
municipal animal care and control agency, should be to find responsible, lifelong homes for animals suitable
as companions./53 Such matchmaking requires knowledge of both the animals to be placed and their
prospective adopters. It is not a kindness to animals for an agency to place them in homes where they will
fail to receive adequate care and companionship, food, water, shelter, or veterinary care when necessary.
Nor is it a benefit to the community for an agency to place animals where they will be allowed to roam the
streets, violate animal-control laws, or add their offspring to the surplus of unwanted animals that already
burden the community.
--------------------------------------------------------------------------------
FN53/ The HSUS "Guidelines for Responsible Adoption Programs."
--------------------------------------------------------------------------------
Counseling and evaluating potential adopters can be based on three basic criteria that we refer to as the
"three C's": 1) a commitment to the life and needs of the animal; 2) a compassion and a desire for mutual
companionship; and 3) a capability of providing the essentials of a healthy, happy life for the animal./54
--------------------------------------------------------------------------------
FN54/ The HSUS Shelter Sense,"Until There are None, Adopt One." December 91/January 92.
--------------------------------------------------------------------------------
The adoption process should be a positive and friendly process--not an opportunity for the 'adoption police'
to continually find fault with a person's pet owning lifestyle. The organization should take all steps necessary
to educate shelter visitors about being a good pet owner and how to choose an animal companion who best
matches their hopes and needs. A more interactive adoption process is beneficial for the animal and the
adopting family.
With this in mind, we suggest that CACC:
Continue with development of a comprehensive plan to improve its overall adoption program, with an eye on
quality over quantity.
Develop strong customer service and marketing skills. It is best to be known for being friendly, helpful,
supportive, and fair in all aspects of adoption programs./55
Expand the hours in which the shelter is open to the public for adoption. Convenient evening and weekend
hours will enable individuals and families with busy work schedules to visit the shelter for both adoption and
redemption of animals.
Implement basic interactive adoption counseling and application approval prior to adopters choosing (and
falling in love) with a particular dog or cat whenever possible. Obviously, some visitors will just wish to (and
should be able to) initially browse the shelter's kennels, but obtaining landlord approval, discussing
appropriate pets, and making decisions about any adoption restrictions before the potential adopter selects
an animal may be appropriate in many cases. Requiring a shift in how the shelter does business may take
time, but is fairer to adopters and establishes a more user-friendly agency.
Keep approved adoption applications on file and encourage potential adopters to visit the shelter frequently
to find the appropriate animal for their household.
Be pro-active and call to remind customers with approved applications on file to visit the shelter. Applications
for particular breeds, sizes or ages of animals can also be kept on file and potential adopters called if those
animals become available.
Encourage owners who surrender a dog or cat to complete a "pet personality profile" providing a great deal
of the animal's background, history, likes, dislikes. While this information is not always accurate, it can often
serve as a valuable tool for placing animals into the most appropriate new homes and should be kept on file.
Failed adoptions can often be prevented by fully evaluating animals and providing as much information as
possible.
Provide an adequate number of adoption counselors, thoroughly trained in the adoption process, animal
behavior, organizational guidelines, and customer service.
Consider developing a regularly updated list of animals for adoption that can be made available to
interested persons calling or visiting the shelter. The list could provide a little background about each animal
and may encourage adoptions or help with selecting the appropriate dog or cat to meet each adopter's
unique needs.
Consider establishing an 'adoption request' file system for specific breeds/types of animals. Maintain
information on those persons who are approved for adoption but whose "dream animal" was unavailable at
the time of the shelter visit.
Collect and review adoption applications, contracts, release agreements, and animal profile sheets from as
many shelters as possible. Incorporate the best ideas to continually improve these important forms at the
CACC facilities.
Charge the same adoption fees for dogs and for cats. Animal care and control facilities must continually
reinforce the idea that cats should be treated with the same respect and concern as dogs. Adoption fees
and laws should treat both species equally. (Sterilization fees will obviously differ, however).
Continue to require sterilization of all adopted animals and aggressively follow-up to ensure compliance.
Conduct studies to understand CACC's success in placing animals. Examine the number of adoption
applications approved versus the number rejected (and the reasons for rejection). Study the length of time it
takes to review and approve adoption applications. Conduct follow-up phone calls to both adopters and
those not adopting animals to learn more about the public's reaction to their experiences at CACC facilities.
Use this information to continually improve the adoption process.
Develop clear policies regarding the adoption/disposition of various species of animals, including wild, farm,
or exotic animals, or animals that require special care, such as birds, reptiles, potbellied pigs, and ferrets.
Consider bringing in an outside consultant (such as Jan Elster) with expertise in customer service in animal
shelters.
--------------------------------------------------------------------------------
FN55/ The HSUS Animal Sheltering, "Customer Service." Nov/Dec 1996.
--------------------------------------------------------------------------------
When seeking to place unwanted animals, shelters face stiff competition from pet stores, breeders, and
sources of free animals. A recent survey conducted by the American Animal Hospital Association (AAHA)
revealed that as few as 14% of persons with dogs or cats acquired them through shelters. A similar survey
by The HSUS reported comparable numbers.
Prospective pet owners stay away from an animal shelter for a variety of reasons, including (but not limited
to):
Ignorance of the surplus animal problem
Impulse buying and impulse accepting
Perceived quality of animals
Unfamiliarity with the animal shelter
Misconceptions about the animal shelter
Inconvenience of hours and/or location of shelter
Shelters cannot hope to overcome some of these obstacles very easily--many preconceived notions about
shelters and shelter animals are so deeply rooted in the American psyche that they are taking decades to
change. But other problems may have more achievable solutions--perhaps something as basic as noting
any improvements made and helping to correct a shelter's lack of (or negative) visibility in the community.
We recommend that all persons interested in helping the animals of CACC work together to encourage
members of the community to support and visit the shelter, especially when looking for a new companion
animal. Negative and disparaging remarks about CACC's "low adoption rate" will do nothing but further the
problem.
Further, we recommend that the CACC encourage responsible shelter adoptions through increased
marketing techniques. These may include advertising (such as the recent CACC subway advertisements),
increasing public recognition and therefore bringing more people to the animal shelter, maintaining an
attractive facility, and presenting healthy dogs and cats for adoption.
Increasing adoptions, however, demands careful regard for the adoption process, in the effort to ensure that
healthy animals are placed in responsible homes. Shelters already HAVE surplus animals because of people
who either couldn't or wouldn't provide a lifelong home, or allowed their pet to breed. Placing an animal in
any home in order to avoid euthanasia does not solve pet overpopulation, and, in fact, contributes to it.
Adoption Partners
CACC has an "Adoption Partnership Agreement" with area groups to increase adoptions. Outlined within this
agreement are definitions of the partnering individual and/or group's responsibilities, such as for
sterilization, veterinary treatment, and notification of final disposition. In Manhattan alone, 10-100 animals
(including exotics) are placed with participating groups on any given day.
A Special Adoptions Coordinator position has been newly created within CACC operations. This position
primarily monitors and oversees the logistics associated with the "Adoption Partnership Agreement."
Unfortunately, there appears to be no real way of enforcing the agreement, and until recently, records
relating to this program had never been tracked. Currently, with close oversight, participants are reportedly
resisting cooperation.
"Foster Care at the CACC" is a document describing the general fostering philosophy and the logistics of
becoming a foster parent. There is no real description of parameters, however, and this document primarily
advertises the program. Oversight of this program has been difficult and there are currently not enough
trained staff to handle screening and follow up. Brooklyn appears to be the only shelter managing effective
control over fostering programs, but there are no methods to adequately measure success or failure.
Adoption partner screening and application procedures are currently in development. Groups with a
long-standing relationship with CACC continue while this process is restructured. But according to the
Director, active solicitation of new groups is on hold until a responsible screening protocol is in place. We
are concerned however that some new arrangements are occasionally initiated based on referrals by either
employees or those already involved.
The two largest adoption-partnership programs are with North Shore Animal League (NSAL) and the
American Society for the Prevention of Cruelty to Animals (ASPCA). These two relationships, however, are
monitored by the office of the Executive Director. The CACC seems to be very comfortable with the
arrangement with the ASPCA, and in fact wishes they could assist with more animals. CACC staff stated they
believe the ASPCA performs quality adoptions and performs sterilization before release. Opinions regarding
the current system to provide animals to NSAL conflicted, which implies a more precarious relationship.
Many staff on varying levels expressed concern regarding NSAL's adoption program, and a desire to end
this relationship. Others felt some uneasiness, but felt this relationship should be maintained. Still others
found the program suitable.
Smaller private groups are also used and held to a high standard. However, as stated earlier, oversight of
this program is difficult, to say the least.
Recommendations: We found the CACC's willingness to work with outside groups to be an excellent example
of collaboration for the benefit of all animals. In general, community adoption partners can play an extremely
supportive and helpful role to an animal care and control agency, or they can be extremely difficult and
divisive organizations with which to work.
To ensure good relationships that truly benefit animals, very clear organizational policies must be used to
develop guidelines, procedures, and practices./56 There must also be realistic expectations and respectful,
trusting relationships between the shelter and the outside groups.
--------------------------------------------------------------------------------
FN56/ The HSUS Shelter Sense"Breed Rescue; A Fragile Alliance." October, 1993.
--------------------------------------------------------------------------------
Primary concerns of The HSUS relate to responsibility, "ownership" and disposition when an animal is
"placed" with any outside individual or group. Once an animal is released, the CACC's responsibility does
not end there. It continues to carry the ethical (and sometimes legal) burden of assuring responsible
placement, ensuring compliance with regulations and laws, and is potentially liable for any problems.
At issue is a subtle, yet important consideration relating to terminology. While it certainly may not be the
intention to do so, negative messages are often sent to the public when statements are made about outside
persons "rescuing, removing, or taking animals from an animal shelter." Unfortunately, rather than seeing
this effort as a positive step on the shelter's part to work with outside groups to explore a variety of arenas
to enhance adoptions, the public often tends to infer that the shelter is simply not to be trusted to do the
best thing for the animals and that animals should be "rescued from the horror" and taken to a kinder, more
caring location. This type of response has been seen in many areas of the country--hence the general
recommendation by many in the animal protection field to replace the term "rescue group" with the more
appropriate term "adoption partner."
Another issue that merits discussion relates to the vagueness of the actual parameters of adjunct adoption
programs. The terms "foster, rescue, and transfer" are frequently used by shelters around the country, but
often with little or no clear definition. In our experience, two options generally tend to occur:
Temporary -- The situation serves as a temporary home for the animal with the originating organization
maintaining ownership and responsibility for the animal. The temporary caregiver provides care but has no
role (or rights) regarding placement. Reasons for this arrangement traditionally include: behavior evaluation,
recovery from illness/injury, or the weaning of newborn puppies/kittens. In this option, decisions regarding
the final placement of the animal and his/her care are maintained by the originating organization.
-or-
Permanent -- The adoption partner is in effect the adopting party to whom the originating organization has
transferred ownership. All further responsibility for the animal is therefore assumed by the adoption partner.
Implied in this transfer is the knowledge that this partner will themselves adopt the animal into another,
permanent home.
It should be quite clear to all participants the absolute parameters, application, and lines of authority
regarding partnerships.
Another general concern is the viability and legitimateness of those seeking access to shelter animals
awaiting adoption. It is not uncommon for individuals with no resources or experience to be self-proclaimed
adoption partners in an effort to designate positions of responsibility within an organization without any
training or authority to do so. In fact, it is not unusual for animal collectors to attempt to acquire animals from
shelters with little or no intent of ever placing them into new homes. As a result, CACC is wise to be
developing safeguards and checks and balances. These should be instituted as soon as possible (with a
means of enforcement in place) to prevent this type of situation from occurring with animals released from
CACC facilities.
It is the responsibility of CACC management to ensure that working with diverse groups does not
compromise its own standards. While working together toward the goal of finding more good homes for the
animals, a great deal of planning, structure and cooperation needs to be provided for this program to be
effective. Adoption partners are not meant to solely increase adoptions, but to increase the quality of life for
some animals not suitable for the shelter environment./57
--------------------------------------------------------------------------------
FN57/ HSUS Animal Sheltering, "Shelter Foster Programs" May/June, 1996.
--------------------------------------------------------------------------------
Toward that end, we recommend the following:
Continue to develop firm policies and guidelines for the role that community adoption partners will play in
working with CACC.
Pay close attention to the types of groups wishing to maintain a relationship. For example, are specific
groups interested only in certain breeds of purebred animals and do they hesitate during discussions of
sterilization?
Work with CACC legal counsel to explore potential liability issues inherent within this program.
Develop appropriate legal documents outlining arrangements for animals released to outside groups. Clarify
terminology and responsibility for all parties and their legal and practical implications.
Carefully review and evaluate all current and future community adoption partners and their motives, success
or failure at promoting responsible, life-long adoptions. Develop a listing of approved persons and
organizations with which to responsibly place animals. Insist that no individual(s) be allowed to simply identify
themselves as a member of an approved group without appropriate verification and/or review.
Conduct site visits for any larger scale animal holding. Issues to be examined and monitored regularly
should include (but not be limited to):
specific details relating to the housing of animals,
methods used to approve potential adopters and place animals;
fees charged and services provided;
numbers of animals the group typically has;
the success rate for placing animals;
policies concerning the sterilization of animals;
the ability to provide veterinary care;
financial resources of the organization; and
the number and qualifications of people involved.
In addition, CACC should carefully determine the type(s) and number(s) of animals provided to approved
groups. It is imperative to develop pragmatic and clear policies regarding decision making within CACC
management. Decisions to release animals must always reside with CACC management, and never with the
groups themselves.
Friction and infighting between staff and adoption partners are not unusual to see. Preventing (or at a
minimum reducing) this type of conflict should be a constant management priority. Across the country, these
relationships are considered a 'fragile alliance' and take a great deal of effort to maintain. Unrealistic
expectations, impatience, egos, lack of communication, rumors and gossip, personality clashes, and a
general climate not conducive to collaboration are problems that often contribute to a state of mistrust and
accusations. All groups have a shared vision for animal protection and care, and all need to work together
to improve their working relationships--as "Adoption Partners."
CACC Adoption Centers
The Bronx and Queens shelters are currently limited in scope, serving primarily as receiving stations for
unwanted animals, and adoption satellite centers for potential adopters. Zoning prohibits, however, the
housing of animals in these facilities overnight. As a result, transportation of these animals to and from
facilities is a cumbersome process.
One employee each from the Bronx and Queens shelters starts the day off at the Manhattan or Brooklyn
shelter respectively. Using CACC Animal Rescue Vehicles, animals are transferred to either the Bronx or
Queens Pet Receiving and Adoption Center, depending on where that staff person is officially stationed.
Depending on the number of animals received or adopted at these facilities, one to three trips must be
made back to the Manhattan shelter (Manhattan currently receives all intakes from Bronx and Queens while
the Brooklyn facility is under renovations). At the end of the day, all animals not adopted must be
transported back to the shelter of origin. At this time, these adoptable animals are unfortunately transported
with animals received (stray or surrendered) that same day.
Because the Bronx and Queens facilities do not have veterinarians on staff, all animals (including sick and
injured) entering these facilities must wait until transport to Manhattan to receive veterinary examinations.
During our visit, we observed a cat who, from a layman's perspective, appeared to be in extremely poor
physical condition, who would have to wait to be examined until arrival at Brooklyn or Manhattan.
Euthanasia is also not performed at these facilities and the wait for transportation to another facility can
sometimes be up to a few hours. In extenuating circumstances, staff immediately transports seriously ill or
injured animals. Based on current staffing levels, however, is not always possible, and certainly not the most
efficient system.
Recommendations: Other avenues should and must be explored to increase the efficiency of this satellite
system, especially in relation to the transportation of animals between facilities. This process is cumbersome
to both animals and staff, and takes much-needed vehicles and drivers out of commission.
Furthermore, arrangements should be made to seek alternatives to the simultaneous transfer of adoptable
and incoming animals. Many infectious diseases are airborne, and this effort increases the opportunity for
exposure. Regardless, Animal Rescue vehicles should be well disinfected between use.
Worthy of consideration is the temporary ceasing of adoptions from the Bronx facility and the current
Queens facility while a comprehensive evaluation is performed on this process. According to CACC
statistics, the Bronx and Queens facilities together accounted for less than 3% of adoptions in 1995, 1996,
and 1998, and it appears that a thorough review is in order.
During these times of transition and growth, the effect on staff morale should not be overlooked. In fact, time
spent currently overseeing transportation and management of the transfer program may be better used as
an opportunity to invest energy into refining the adoption procedures at the three shelters where the
majority of adoptions occur. Finally, until such time as each facility may have veterinarians on staff, protocol
should be in place for animals to be euthanized in emergencies, for humane reasons, at all five facilities.
Sterilization at Adoption Programs
Note: An evaluation of sterilization services provided by outside organizations under contract with CACC is
beyond the scope of this evaluation.
The CACC provides sterilization services for only a small portion of the animals it handles. Animals adopted
or returned to owners from the Brooklyn shelter are sterilized by a private veterinary hospital or released
with a sterilization requirement./58 Animals adopted or returned to owners from the Manhattan shelter are
either: a) sterilized by the Have-A-Heart clinic operated by the Fund for Animals; b) by the ASPCA's mobile
sterilization facility; or c) are released with a sterilization requirement. Arrangements with the Have-A-Heart
clinic and the ASPCA result in the sterilization of fewer than 30 animals per week.
--------------------------------------------------------------------------------
FN58/ CACC Adoption Contract.
--------------------------------------------------------------------------------
The majority of animals released from the other three shelters are released with a sterilization requirement.
Some male animals are neutered by staff veterinarians, although it was not clear whether adequate facilities
and equipment are available to perform these procedures, or how postoperative monitoring and care is
provided.
As CACC management themselves know, there are inherent problems with each of the above methods of
providing sterilization services. Transporting animals to an outside facility is time-consuming and can add
additional stress for the animals.
There appears to be little or no counseling about postoperative care provided to the adopters/owners of
animals sterilized prior to adoption/release. CACC staff indicated only that written (English-language)
postoperative care instructions are provided. Owners/adopters have no direct contact with veterinary staff
knowledgeable about the procedure performed on their animal or the follow-up care which is required. This
situation seems to present a significant risk for postoperative complications to the patient, as well as a
liability risk to the CACC and the facility providing the sterilization service.
Recommendation: Provision of sterilization services for animals handled by the CACC is currently
disorganized, ineffective, and inefficient. Coordinating sterilization services through these various means is
difficult if not impossible. In addition, this has resulted in poor sterilization compliance, intensive and
time-consuming follow-up, and--of great concern--poor postoperative support for those animals who are
sterilized before adoption/release.
Internal and standardized provision of sterilization services for all CACC facilities should be pursued as a
short-term (three years or less) goal. Those funds which were previously allocated for a spay/neuter
coordinator should be used solely for that purpose.
In conjunction with the Director of Adoptions, this team should explore the establishment of sterilization
facilities for, in, or near all five shelters which will: provide sterilization before adoption in a safe, efficient,
and cost-effective manner for all animals adopted/released from the CACC; create and maintain
standardized procedures, protocols, and record-keeping systems for these facilities; monitor sterilization
compliance for those few animals released to owners/adopters without being sterilized (for health reasons or
other extenuating circumstances); and serve as a liaison to the local veterinary community, ensuring that
they are knowledgeable about how and why the CACC provides in-house sterilization services. In addition,
they should ensure that postoperative patients presented to private practitioners receive coordinated and
consistent care.
In addition, a legally-binding sterilization contract (separate from the adoption contract) should be used for
the situations in which an animal chosen for adoption or release to an owner is deemed temporarily
unsuitable for sterilization surgery by the attending veterinarian. The decision to release an animal with a
sterilization contract should be made in consultation between the attending veterinarian and the adoption
counselor, with the animal's health status and the adopter's application being considered. The contract
should be signed by the adopter/owner at the time of release, indicate that they have received a copy, and
be kept on file by the animal care and control agency. The sterilization contract should indicate the final date
by which the procedure must be performed, as well as documentation required to verify the procedure.
Sterilization follow-up procedures should closely monitor unsterilized animals to ensure compliance.
Animals presented to the public for adoption should be of minimum health status in order to increase the
likelihood that they will be suitable surgical candidates. They should be eight weeks of age or older, free of
symptoms of infectious disease, and of good body condition. Animals who are not good candidates for
sterilization surgery should not be offered for adoption to the general public, but may be offered to those
adopters who may also be offered a sterilization contract, or placed in temporary foster care until deemed
appropriate for surgery.
In order to protect the health of the animal and the liability of the veterinarian, only the attending
veterinarian should determine a particular animal's suitability for sterilization surgery when presented.
Adoption staff and adopters should be well aware that a particular animal may not be deemed suitable for
surgery, and those adopters who may not be offered a sterilization contract (for whatever reason)should be
aware that their initial choice of animal may not be approved for adoption based on unsuitability for
sterilization surgery.
The sterilization of sheltered animals requires unique skills of the veterinarian and veterinary staff. They
should understand the characteristics of shelter populations and take these into consideration when
evaluating animals as anesthetic/surgical candidates, and when determining how best to provide pre- and
postoperative care. They should be knowledgeable of and experienced at sterilization of prepubertal,
geriatric, and immunocompromised patients, and be familiar with methods for safely and efficiently sterilizing
a number of animals in succession.
In-house sterilization of adopted/owned animals requires specific facilities dedicated to that purpose.
Specialized equipment used for the evaluation, monitoring, and pre- and postoperative care of sheltered
animals is also required. Adequate funding for facilities, equipment, personnel, drugs, surgical supplies, and
administrative support is essential to safe and efficient sterilization of sheltered animals.
The 24-hour period immediately following sterilization surgery is when post-surgical complications are most
likely to occur. These may range from minor--bleeding or swelling-- to life-threatening--dehiscence (opening
of the surgical incision) or internal hemorrhage.
Arrangements for postoperative monitoring and care on the evening of the day of surgery can be made in
one of two ways:
Animals can be released to their owner/adopter. This requires careful counseling of the owner about how to
monitor and care for the animal, as well as arrangements for skilled personnel to be available to assist the
owner should post-surgical complications occur before the sterilization facility is again open and available.
This may be done by having a trained staff member "on call" throughout the night to answer questions and
concerns from animal adopters/owners, or by pursuing and maintaining close relationships with local animal
emergency hospitals, to which owners/adopters can be directed.
-or-
Animals can be provided overnight recovery before release. This option requires space for recovery
facilities (which may be the same space used for pre surgery animals, if surgery is not performed on
consecutive days), as well as overnight monitoring by personnel trained to provide postoperative care and
to recognize signs of complications. Arrangements must also be made to deal with any complications that
cannot be addressed by that staff member, i.e., calling in a staff veterinarian or transporting the animal to a
local emergency animal hospital.
In the interim, it is essential that the CACC continue to carefully monitor sterilization compliance. Better
coordination of postoperative care support for adopters/owners of animals sterilized prior to release from the
Manhattan clinic should be pursued.
Lastly, CACC veterinary staff, in cooperation with the Fund for Animals should continue seeking funding to
work with area veterinarians to encourage early-age spay/neuter (the sterilization of animals at the age of
8-12 weeks). This procedure has been endorsed by The HSUS, American Humane Association (AHA), the
American Society for the Prevention of Cruelty to Animals (ASPCA), the American Veterinary Medical
Association (AVMA), the American Kennel Club (AKC), Cat Fanciers Association (CFA), Fund for Animals,
National Animal Control Association (NACA), and many other national and regional animal protection
groups./59
--------------------------------------------------------------------------------
FN59/ The HSUS Shelter Sense reprint on "Early-Age Spay/ Neuter Programs and Services"
--------------------------------------------------------------------------------
VOLUNTEERS
With the exception of a few committed individuals currently volunteering in CACC shelters, at the time of our
visit, the CACC volunteer program had been suspended, pending review and restructuring. Reports of the
program prior to its suspension indicated that many of the volunteers were dissatisfied with either their roles,
the limitations on their authority or policies and procedures of the organization. Some staff reported such
frustration with former volunteers that they were not enthusiastic about seeing the program restored at all.
Others felt that it simply had to be better structured, with clearer expectations for the volunteers, more
screening, and more control.
The program as it had been operated reportedly had no job descriptions for the volunteers, no formal
screening or interview process, no formal orientation or training, and no clear reporting structure. Staff
perception was that some volunteers were uncomfortable with CACC's need to euthanize and saw their work
with the organization as a way to "change" the way things were done, and to meet personal agendas.
The new Director of Adoption and Volunteer Services, who joined the staff earlier in the year, has plans to
reestablish and expand the volunteer program, but under a much more structured format.
At the Brooklyn facility, volunteers handle off site adoptions, a relationship everyone seems to be
comfortable with. The volunteers are said to be reliable and accepting of CACC adoption procedures,
though it is unclear how this is measured.
Recommendations: Without a formal program of job descriptions, training, evaluation, and supervision,
volunteers should not be used or encouraged at the CACC until such time as these can be completed. We
suggest this for two primary reasons:
1) The current CACC leadership is still considerably new, given the scope of operations and responsibilities.
Attention needs to be paid to the development of thorough protocols and procedures before volunteers can
be effectively integrated into the operations; and
2) Volunteers can be extremely helpful but require a great deal of guidance and organization. Without a
coordinated volunteer program, there can be no successful results.
Future plans outlined for HSUS E-Team members include a strong volunteer program. Volunteers would
continue to participate in the popular programs such as dog walking and offsite adoptions. However there is
an interest in utilizing volunteers in areas other than adoption and handling, which require the most training.
The proposed volunteer program would also include a qualification process. Selected individuals would
complete a comprehensive training program which provides a basic orientation to the CACC philosophies,
facilities, operations and protocols, and would also include a familiarization with handling, equipment, and
basic safety.
The following information has been adapted from The HSUS magazine, Animal Sheltering, for your
consideration:
While the long list of benefits offered by a volunteer program are immediately compelling, the pitfalls of a
quickly conceived or poorly managed program can be crippling. Difficulties involving volunteers are rarely
brought about by the volunteers themselves; they nearly always arise as a direct result of a shelter's own
planning and policies, or lack thereof.
Municipal animal-control agencies generally recruit fewer volunteers than private agencies, but the conflicts
are often equally problematic. In every case, communication is the key. A poorly developed program
designed to compensate for staff shortages, for example, will often detract from the efforts of full-time staff
and will rarely help the animals in the shelter. If the ship is already sinking, bringing aboard more
passengers will only hasten the descent.
More often than not, hastily organized programs leave shelters with dozens of ineffective, uncommitted
volunteers who stop by only on rare occasions to walk a dog or two; or worse, a handful of well-meaning but
ill-informed volunteers who seek to change the shelter's philosophy and eventually undermine its mission.
What's more, a few unhappy volunteers who quit in frustration may go on to tell others of the shelter's failing
program, ruining your organization's reputation in the process.
For some shelters, a volunteer program is not worth the investment. Certain animal care and control
facilities, for example, do without volunteer programs because liability concerns or labor issues make it
impractical or impossible to place volunteers in positions of responsibility. Other humane organizations lack
the resources necessary to oversee such a program. Simply put, a shelter can be successful without
volunteers.
But if your organization is interested in investing in the many benefits that volunteers can bring to your
shelter and the animals, remember that volunteers will give you their time and talents free. Just remember
that you'll still need to invest plenty of time and energy into the program. It takes a great deal of work to
recruit, screen, train, and retain volunteers in an animal shelter.
To ensure that staff and volunteers understand their respective roles in the organization, sit down with your
staff and review the following policy considerations before bringing the next volunteer on board:
What positions will be assigned to volunteers? What will their job descriptions consist of? What duties will
they not be allowed to perform?
What will be the minimum age for volunteers?
Will volunteers wear uniforms, color-coded clothing, or name tags?
Will volunteers be allowed to work directly with the public?
How much contact will volunteers have with the animals?
What areas of the shelter will volunteers be permitted to work in?
How, when, and where will orientations be conducted?
How many hours of training will be required? Will it vary by position?
How will volunteers record the time they donate?
Will there be a certain minimum time commitment? Number of hours per week? Number of months the
person will promise to participate?
How will staff-volunteer conflicts be resolved?
What will be the protocol for reviewing and dismissing volunteers?
What actions will be taken if a volunteer is injured "on the job"?
Will your shelter provide separate insurance coverage for volunteers or will coverage be provided under the
shelter's general policy?
Because shelters differ greatly in size and scope, few answer these questions the same way. Some shelters
need plenty of help with animal care, while others have a list of dog walkers longer than the kennel runs
themselves. Some shelters hold scheduled orientation sessions once a month, while others wait until they've
gathered enough interested applicants. Insurance agreements and legal obligations also vary from shelter
to shelter, so contact your agent and your local labor department to make sure your volunteer program is
adequately protected.
Write down the rules and regulations that will help you manage the volunteer program and help volunteers
learn their way around your shelter, both literally and figuratively. These policies would tell volunteers how to
sign in and log the number of hours worked; what to wear to the shelter; what areas of the facility are
off-limits; how and when they should interact with the staff, public and/or the press; whether and where they
can eat or smoke on the premises; how to handle grievances; and what to do in the event they are injured at
the shelter.
After you've drafted these initial volunteer policies, take a three-hole punch to the page and insert that
document in a binder. You're well on your way to tackling the next obstacle--creating a comprehensive
volunteer manual to hand to each of your volunteers. Remember that most of the people who volunteer
know only that they want to help animals. They may have little or no understanding of the actual work your
shelter does or the philosophical issues surrounding animal sheltering.
So in addition to basic rules and policies, make sure that the pages of that manual contain:
the goals of your organization
the goals of the volunteer program
the services your shelter provides
volunteer "job descriptions," including the responsibilities and duties of each position
your shelter's philosophy on complicated issues such as euthanasia and adoptions
general information about the shelter including operating hours and important phone numbers
shelter statistics regarding intake, adoption, and euthanasia
shelter policies such as adoption procedures and holding periods
a brief history of your shelter and some of its achievements
Unfortunately, because of this overwhelming interest, some volunteer coordinators seem to feel that the
shelter is there for the volunteers rather than the other way around. Be careful not to make that mistake.
During the recruitment process, you should look for energetic individuals with specific goals and talents.
You're under no obligation to find opportunities for every willing volunteer. You just need to find a willing
volunteer for every opportunity.
Make sure that every volunteer understands that performing euthanasia is stressful on the staff, and that
even though volunteers will not be asked to take part in the process, they will be expected to support those
who do. In fact, if volunteers and staff are to truly understand each other, volunteers must be educated
about the stress involved in every aspect of sheltering, from dealing with the public to euthanizing an
abused animal. In addition, managers want volunteers to help staff members do their jobs but full-time staff
may be threatened by the presence of volunteers or feel that volunteers understand little about the
concepts of animal protection and the complexities of shelter work. Workers may also feel that volunteer
training requires too much of their time, and may be frustrated by the constant stream of questions posed by
uninformed volunteers.
When full-time staff become frustrated with volunteers' inquiries, remind them that in some ways volunteers
are only one step removed from members of the general public, and that in most cases they are only
seeking an honest explanation.
--------------------------------------------------------------------------------
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 7].
--------------------------------------------------------------------------------
ADOPTIONS
General
The greatest impression the members of The HSUS E-Team received regarding adoptions is the incredible
priority it holds within the CACC, and The HSUS Evaluation was initiated in a desire to improve this program.
But perhaps most revealing was the way in which future plans and renovations have been (and continue to
be) developed with a focus on increasing adoptions.
For example, the layout and cage design for the Brooklyn and Manhattan shelter renovations have been
prioritized to increase capacity as well as to allow for fluid holding arrangements. Currently, cages are fixed
and designated between animals up for adoption and those who are not or never will be. Additional plans
have been created to make the adoption space more inviting to the public.
In the future, plans call for mobile cage units that can be transferred to adoption areas as needed. This is to
ensure that more animals can be displayed as soon as their holding period is up and they are ready for
adoption.
There is a fear amongst staff that if animals are not moved to the adoption area rapidly, they will become
unadoptable due to exposure to disease. But since the stray period is only two days in New York, and
animals are vaccinated on the day of impound, many of the adoptable dogs and cats are in and out of the
shelter before they really have a chance to acquire or develop any symptoms of disease. Currently
infectious diseases do not seem to significantly impact the operations of the shelter, the adoption program,
or the animals themselves.
As stated earlier, the "euthanasia related" criticism that the CACC has received weighs heavily on all levels
of staff, not just the euthanasia technicians. For some members of CACC management, increasing
adoptions has become the answer to decreasing euthanasia and therefore the intense criticism of the
public. Great reliance has been placed on adoptions to the point where we are concerned that objectivity
may be impaired. Currently, public pressure is sending a clear if subliminal message that quantity is to be
valued above quality.
Current Status
In spite of the great importance placed on this one area, the current adoption program is inadequate,
though not for lack of effort. The philosophy of increasing quantity of adoptions is being emphasized without
provisions for the proper tools to ensure quality. However, the newly hired adoption coordinator appears to
have a sense of the current program's weaknesses, in addition to future plans and program goals.
Unfortunately, since starting, she has had little opportunity to focus specifically on adoptions. Because of
shelter renovations, her time has been most spent assisting at the Manhattan shelter, which is operating
under a 33% increased volume. The Manhattan shelter has also been undergoing substantial staff changes.
We recognize that this has occurred out of necessity and note that in some ways it could be beneficial. For
the Director of Adoptions to be familiar with all aspects of CACC operations can further guide her in her
assessment of its future. But unfortunately, in the meantime, the adoption program is moving full steam
ahead without the benefit of her guidance or expertise.
Staffing
In addition to the Director of Adoptions, each shelter has an Adoptions Coordinator. Brooklyn and
Manhattan have Assistant Coordinators who are scheduled five days a week. There are two designated
service representatives who handle adoptions in Manhattan and one part time in Brooklyn. At the other
three shelters all staff participate in adoptions. There is also the new Special Adoptions Coordinator
position, and a part time Spay/Neuter Coordinator for Manhattan. The director hopes to soon add two
additional counselors and have assistant coordinators seven days a week.
The increase in staffing levels dedicated to this program is commendable, but there is no doubt that more
staff are necessary to handle the volume of adoptions the CACC is pushing for and is pushed for. Currently,
these few individuals have to handle thousands of adoptions a year. To do so includes helping to match
owners with the right pets, screening and qualifying responsible owners, counseling and behavior
assistance, processing paper work, handling calls about the adoption program, providing follow up services,
overseeing foster and rescue programs, coordinating satellite adoptions, and helping to manage the
make-up of the adoption ward.
A training program will be necessary, designed to instruct staff in adoption protocols and counseling. The
director plans to institute a two-week adoption counselor training program, and consulted with HSUS staff for
suggestions relating to components. In the meantime, there is a noticeable uneasiness with the
effectiveness of current adoptions.
The Adoption Process
We were given the greatest insight into the program at the Brooklyn shelter. A lot of the "right" steps and
implements are in place, such as a pre-adoption screening with standard questions, reference checks, and
housing checks. Counseling does occur throughout the decision-making and adoption process.
All animals adopted are vaccinated for rabies and have been given a health examination. Microchipping of
all adopted animals is a good feature of CACC's adoption program. Animals at the Brooklyn shelter more
than 3.5 months of age are held for sterilization prior to leaving the shelter, but at the other shelters, this is
not yet possible.
Brooklyn appears to have the most developed and active adoption program, although none are
comprehensive or serve as a model. For example, efforts to follow up with adopters are often met with
complications. While follow-up records at the Brooklyn shelter are kept in a manual log book, this type of
system does not occur at the other shelters. While the philosophy of the CACC is that its relationship with
the adopter does not end at the time of adoption, there are currently not enough staff capable of handling a
responsible follow up program.
The ability of the current staff to serve as knowledgeable counselors and advisors also comes into question.
While many of the staff are well-meaning, they lack access to the training resources needed to be effective.
As a result, it appears that paperwork dominates the process, and that minimal meaningful counseling and
advice is given. In addition, there seems to be great frustration over certain members of the staff who were
uninterested in learning the extra skills required to make them effective counselors.
Recommendations: While immediate in its impact, adoption programs alone are not the only (nor necessarily
the most effective) means to reducing euthanasia. CACC is not only
limited by the number of available and appropriate homes in the communities it serves, but also by
competition from alternative sources for companion animals within the City.
The purpose of an adoption program, whether conducted by a private animal protection agency or a
municipal animal care and control agency, should be to find responsible, lifelong homes for animals suitable
as companions./53 Such matchmaking requires knowledge of both the animals to be placed and their
prospective adopters. It is not a kindness to animals for an agency to place them in homes where they will
fail to receive adequate care and companionship, food, water, shelter, or veterinary care when necessary.
Nor is it a benefit to the community for an agency to place animals where they will be allowed to roam the
streets, violate animal-control laws, or add their offspring to the surplus of unwanted animals that already
burden the community.
--------------------------------------------------------------------------------
FN53/ The HSUS "Guidelines for Responsible Adoption Programs."
--------------------------------------------------------------------------------
Counseling and evaluating potential adopters can be based on three basic criteria that we refer to as the
"three C's": 1) a commitment to the life and needs of the animal; 2) a compassion and a desire for mutual
companionship; and 3) a capability of providing the essentials of a healthy, happy life for the animal./54
--------------------------------------------------------------------------------
FN54/ The HSUS Shelter Sense,"Until There are None, Adopt One." December 91/January 92.
--------------------------------------------------------------------------------
The adoption process should be a positive and friendly process--not an opportunity for the 'adoption police'
to continually find fault with a person's pet owning lifestyle. The organization should take all steps necessary
to educate shelter visitors about being a good pet owner and how to choose an animal companion who best
matches their hopes and needs. A more interactive adoption process is beneficial for the animal and the
adopting family.
With this in mind, we suggest that CACC:
Continue with development of a comprehensive plan to improve its overall adoption program, with an eye on
quality over quantity.
Develop strong customer service and marketing skills. It is best to be known for being friendly, helpful,
supportive, and fair in all aspects of adoption programs./55
Expand the hours in which the shelter is open to the public for adoption. Convenient evening and weekend
hours will enable individuals and families with busy work schedules to visit the shelter for both adoption and
redemption of animals.
Implement basic interactive adoption counseling and application approval prior to adopters choosing (and
falling in love) with a particular dog or cat whenever possible. Obviously, some visitors will just wish to (and
should be able to) initially browse the shelter's kennels, but obtaining landlord approval, discussing
appropriate pets, and making decisions about any adoption restrictions before the potential adopter selects
an animal may be appropriate in many cases. Requiring a shift in how the shelter does business may take
time, but is fairer to adopters and establishes a more user-friendly agency.
Keep approved adoption applications on file and encourage potential adopters to visit the shelter frequently
to find the appropriate animal for their household.
Be pro-active and call to remind customers with approved applications on file to visit the shelter. Applications
for particular breeds, sizes or ages of animals can also be kept on file and potential adopters called if those
animals become available.
Encourage owners who surrender a dog or cat to complete a "pet personality profile" providing a great deal
of the animal's background, history, likes, dislikes. While this information is not always accurate, it can often
serve as a valuable tool for placing animals into the most appropriate new homes and should be kept on file.
Failed adoptions can often be prevented by fully evaluating animals and providing as much information as
possible.
Provide an adequate number of adoption counselors, thoroughly trained in the adoption process, animal
behavior, organizational guidelines, and customer service.
Consider developing a regularly updated list of animals for adoption that can be made available to
interested persons calling or visiting the shelter. The list could provide a little background about each animal
and may encourage adoptions or help with selecting the appropriate dog or cat to meet each adopter's
unique needs.
Consider establishing an 'adoption request' file system for specific breeds/types of animals. Maintain
information on those persons who are approved for adoption but whose "dream animal" was unavailable at
the time of the shelter visit.
Collect and review adoption applications, contracts, release agreements, and animal profile sheets from as
many shelters as possible. Incorporate the best ideas to continually improve these important forms at the
CACC facilities.
Charge the same adoption fees for dogs and for cats. Animal care and control facilities must continually
reinforce the idea that cats should be treated with the same respect and concern as dogs. Adoption fees
and laws should treat both species equally. (Sterilization fees will obviously differ, however).
Continue to require sterilization of all adopted animals and aggressively follow-up to ensure compliance.
Conduct studies to understand CACC's success in placing animals. Examine the number of adoption
applications approved versus the number rejected (and the reasons for rejection). Study the length of time it
takes to review and approve adoption applications. Conduct follow-up phone calls to both adopters and
those not adopting animals to learn more about the public's reaction to their experiences at CACC facilities.
Use this information to continually improve the adoption process.
Develop clear policies regarding the adoption/disposition of various species of animals, including wild, farm,
or exotic animals, or animals that require special care, such as birds, reptiles, potbellied pigs, and ferrets.
Consider bringing in an outside consultant (such as Jan Elster) with expertise in customer service in animal
shelters.
--------------------------------------------------------------------------------
FN55/ The HSUS Animal Sheltering, "Customer Service." Nov/Dec 1996.
--------------------------------------------------------------------------------
When seeking to place unwanted animals, shelters face stiff competition from pet stores, breeders, and
sources of free animals. A recent survey conducted by the American Animal Hospital Association (AAHA)
revealed that as few as 14% of persons with dogs or cats acquired them through shelters. A similar survey
by The HSUS reported comparable numbers.
Prospective pet owners stay away from an animal shelter for a variety of reasons, including (but not limited
to):
Ignorance of the surplus animal problem
Impulse buying and impulse accepting
Perceived quality of animals
Unfamiliarity with the animal shelter
Misconceptions about the animal shelter
Inconvenience of hours and/or location of shelter
Shelters cannot hope to overcome some of these obstacles very easily--many preconceived notions about
shelters and shelter animals are so deeply rooted in the American psyche that they are taking decades to
change. But other problems may have more achievable solutions--perhaps something as basic as noting
any improvements made and helping to correct a shelter's lack of (or negative) visibility in the community.
We recommend that all persons interested in helping the animals of CACC work together to encourage
members of the community to support and visit the shelter, especially when looking for a new companion
animal. Negative and disparaging remarks about CACC's "low adoption rate" will do nothing but further the
problem.
Further, we recommend that the CACC encourage responsible shelter adoptions through increased
marketing techniques. These may include advertising (such as the recent CACC subway advertisements),
increasing public recognition and therefore bringing more people to the animal shelter, maintaining an
attractive facility, and presenting healthy dogs and cats for adoption.
Increasing adoptions, however, demands careful regard for the adoption process, in the effort to ensure that
healthy animals are placed in responsible homes. Shelters already HAVE surplus animals because of people
who either couldn't or wouldn't provide a lifelong home, or allowed their pet to breed. Placing an animal in
any home in order to avoid euthanasia does not solve pet overpopulation, and, in fact, contributes to it.
Adoption Partners
CACC has an "Adoption Partnership Agreement" with area groups to increase adoptions. Outlined within this
agreement are definitions of the partnering individual and/or group's responsibilities, such as for
sterilization, veterinary treatment, and notification of final disposition. In Manhattan alone, 10-100 animals
(including exotics) are placed with participating groups on any given day.
A Special Adoptions Coordinator position has been newly created within CACC operations. This position
primarily monitors and oversees the logistics associated with the "Adoption Partnership Agreement."
Unfortunately, there appears to be no real way of enforcing the agreement, and until recently, records
relating to this program had never been tracked. Currently, with close oversight, participants are reportedly
resisting cooperation.
"Foster Care at the CACC" is a document describing the general fostering philosophy and the logistics of
becoming a foster parent. There is no real description of parameters, however, and this document primarily
advertises the program. Oversight of this program has been difficult and there are currently not enough
trained staff to handle screening and follow up. Brooklyn appears to be the only shelter managing effective
control over fostering programs, but there are no methods to adequately measure success or failure.
Adoption partner screening and application procedures are currently in development. Groups with a
long-standing relationship with CACC continue while this process is restructured. But according to the
Director, active solicitation of new groups is on hold until a responsible screening protocol is in place. We
are concerned however that some new arrangements are occasionally initiated based on referrals by either
employees or those already involved.
The two largest adoption-partnership programs are with North Shore Animal League (NSAL) and the
American Society for the Prevention of Cruelty to Animals (ASPCA). These two relationships, however, are
monitored by the office of the Executive Director. The CACC seems to be very comfortable with the
arrangement with the ASPCA, and in fact wishes they could assist with more animals. CACC staff stated they
believe the ASPCA performs quality adoptions and performs sterilization before release. Opinions regarding
the current system to provide animals to NSAL conflicted, which implies a more precarious relationship.
Many staff on varying levels expressed concern regarding NSAL's adoption program, and a desire to end
this relationship. Others felt some uneasiness, but felt this relationship should be maintained. Still others
found the program suitable.
Smaller private groups are also used and held to a high standard. However, as stated earlier, oversight of
this program is difficult, to say the least.
Recommendations: We found the CACC's willingness to work with outside groups to be an excellent example
of collaboration for the benefit of all animals. In general, community adoption partners can play an extremely
supportive and helpful role to an animal care and control agency, or they can be extremely difficult and
divisive organizations with which to work.
To ensure good relationships that truly benefit animals, very clear organizational policies must be used to
develop guidelines, procedures, and practices./56 There must also be realistic expectations and respectful,
trusting relationships between the shelter and the outside groups.
--------------------------------------------------------------------------------
FN56/ The HSUS Shelter Sense"Breed Rescue; A Fragile Alliance." October, 1993.
--------------------------------------------------------------------------------
Primary concerns of The HSUS relate to responsibility, "ownership" and disposition when an animal is
"placed" with any outside individual or group. Once an animal is released, the CACC's responsibility does
not end there. It continues to carry the ethical (and sometimes legal) burden of assuring responsible
placement, ensuring compliance with regulations and laws, and is potentially liable for any problems.
At issue is a subtle, yet important consideration relating to terminology. While it certainly may not be the
intention to do so, negative messages are often sent to the public when statements are made about outside
persons "rescuing, removing, or taking animals from an animal shelter." Unfortunately, rather than seeing
this effort as a positive step on the shelter's part to work with outside groups to explore a variety of arenas
to enhance adoptions, the public often tends to infer that the shelter is simply not to be trusted to do the
best thing for the animals and that animals should be "rescued from the horror" and taken to a kinder, more
caring location. This type of response has been seen in many areas of the country--hence the general
recommendation by many in the animal protection field to replace the term "rescue group" with the more
appropriate term "adoption partner."
Another issue that merits discussion relates to the vagueness of the actual parameters of adjunct adoption
programs. The terms "foster, rescue, and transfer" are frequently used by shelters around the country, but
often with little or no clear definition. In our experience, two options generally tend to occur:
Temporary -- The situation serves as a temporary home for the animal with the originating organization
maintaining ownership and responsibility for the animal. The temporary caregiver provides care but has no
role (or rights) regarding placement. Reasons for this arrangement traditionally include: behavior evaluation,
recovery from illness/injury, or the weaning of newborn puppies/kittens. In this option, decisions regarding
the final placement of the animal and his/her care are maintained by the originating organization.
-or-
Permanent -- The adoption partner is in effect the adopting party to whom the originating organization has
transferred ownership. All further responsibility for the animal is therefore assumed by the adoption partner.
Implied in this transfer is the knowledge that this partner will themselves adopt the animal into another,
permanent home.
It should be quite clear to all participants the absolute parameters, application, and lines of authority
regarding partnerships.
Another general concern is the viability and legitimateness of those seeking access to shelter animals
awaiting adoption. It is not uncommon for individuals with no resources or experience to be self-proclaimed
adoption partners in an effort to designate positions of responsibility within an organization without any
training or authority to do so. In fact, it is not unusual for animal collectors to attempt to acquire animals from
shelters with little or no intent of ever placing them into new homes. As a result, CACC is wise to be
developing safeguards and checks and balances. These should be instituted as soon as possible (with a
means of enforcement in place) to prevent this type of situation from occurring with animals released from
CACC facilities.
It is the responsibility of CACC management to ensure that working with diverse groups does not
compromise its own standards. While working together toward the goal of finding more good homes for the
animals, a great deal of planning, structure and cooperation needs to be provided for this program to be
effective. Adoption partners are not meant to solely increase adoptions, but to increase the quality of life for
some animals not suitable for the shelter environment./57
--------------------------------------------------------------------------------
FN57/ HSUS Animal Sheltering, "Shelter Foster Programs" May/June, 1996.
--------------------------------------------------------------------------------
Toward that end, we recommend the following:
Continue to develop firm policies and guidelines for the role that community adoption partners will play in
working with CACC.
Pay close attention to the types of groups wishing to maintain a relationship. For example, are specific
groups interested only in certain breeds of purebred animals and do they hesitate during discussions of
sterilization?
Work with CACC legal counsel to explore potential liability issues inherent within this program.
Develop appropriate legal documents outlining arrangements for animals released to outside groups. Clarify
terminology and responsibility for all parties and their legal and practical implications.
Carefully review and evaluate all current and future community adoption partners and their motives, success
or failure at promoting responsible, life-long adoptions. Develop a listing of approved persons and
organizations with which to responsibly place animals. Insist that no individual(s) be allowed to simply identify
themselves as a member of an approved group without appropriate verification and/or review.
Conduct site visits for any larger scale animal holding. Issues to be examined and monitored regularly
should include (but not be limited to):
specific details relating to the housing of animals,
methods used to approve potential adopters and place animals;
fees charged and services provided;
numbers of animals the group typically has;
the success rate for placing animals;
policies concerning the sterilization of animals;
the ability to provide veterinary care;
financial resources of the organization; and
the number and qualifications of people involved.
In addition, CACC should carefully determine the type(s) and number(s) of animals provided to approved
groups. It is imperative to develop pragmatic and clear policies regarding decision making within CACC
management. Decisions to release animals must always reside with CACC management, and never with the
groups themselves.
Friction and infighting between staff and adoption partners are not unusual to see. Preventing (or at a
minimum reducing) this type of conflict should be a constant management priority. Across the country, these
relationships are considered a 'fragile alliance' and take a great deal of effort to maintain. Unrealistic
expectations, impatience, egos, lack of communication, rumors and gossip, personality clashes, and a
general climate not conducive to collaboration are problems that often contribute to a state of mistrust and
accusations. All groups have a shared vision for animal protection and care, and all need to work together
to improve their working relationships--as "Adoption Partners."
CACC Adoption Centers
The Bronx and Queens shelters are currently limited in scope, serving primarily as receiving stations for
unwanted animals, and adoption satellite centers for potential adopters. Zoning prohibits, however, the
housing of animals in these facilities overnight. As a result, transportation of these animals to and from
facilities is a cumbersome process.
One employee each from the Bronx and Queens shelters starts the day off at the Manhattan or Brooklyn
shelter respectively. Using CACC Animal Rescue Vehicles, animals are transferred to either the Bronx or
Queens Pet Receiving and Adoption Center, depending on where that staff person is officially stationed.
Depending on the number of animals received or adopted at these facilities, one to three trips must be
made back to the Manhattan shelter (Manhattan currently receives all intakes from Bronx and Queens while
the Brooklyn facility is under renovations). At the end of the day, all animals not adopted must be
transported back to the shelter of origin. At this time, these adoptable animals are unfortunately transported
with animals received (stray or surrendered) that same day.
Because the Bronx and Queens facilities do not have veterinarians on staff, all animals (including sick and
injured) entering these facilities must wait until transport to Manhattan to receive veterinary examinations.
During our visit, we observed a cat who, from a layman's perspective, appeared to be in extremely poor
physical condition, who would have to wait to be examined until arrival at Brooklyn or Manhattan.
Euthanasia is also not performed at these facilities and the wait for transportation to another facility can
sometimes be up to a few hours. In extenuating circumstances, staff immediately transports seriously ill or
injured animals. Based on current staffing levels, however, is not always possible, and certainly not the most
efficient system.
Recommendations: Other avenues should and must be explored to increase the efficiency of this satellite
system, especially in relation to the transportation of animals between facilities. This process is cumbersome
to both animals and staff, and takes much-needed vehicles and drivers out of commission.
Furthermore, arrangements should be made to seek alternatives to the simultaneous transfer of adoptable
and incoming animals. Many infectious diseases are airborne, and this effort increases the opportunity for
exposure. Regardless, Animal Rescue vehicles should be well disinfected between use.
Worthy of consideration is the temporary ceasing of adoptions from the Bronx facility and the current
Queens facility while a comprehensive evaluation is performed on this process. According to CACC
statistics, the Bronx and Queens facilities together accounted for less than 3% of adoptions in 1995, 1996,
and 1998, and it appears that a thorough review is in order.
During these times of transition and growth, the effect on staff morale should not be overlooked. In fact, time
spent currently overseeing transportation and management of the transfer program may be better used as
an opportunity to invest energy into refining the adoption procedures at the three shelters where the
majority of adoptions occur. Finally, until such time as each facility may have veterinarians on staff, protocol
should be in place for animals to be euthanized in emergencies, for humane reasons, at all five facilities.
Sterilization at Adoption Programs
Note: An evaluation of sterilization services provided by outside organizations under contract with CACC is
beyond the scope of this evaluation.
The CACC provides sterilization services for only a small portion of the animals it handles. Animals adopted
or returned to owners from the Brooklyn shelter are sterilized by a private veterinary hospital or released
with a sterilization requirement./58 Animals adopted or returned to owners from the Manhattan shelter are
either: a) sterilized by the Have-A-Heart clinic operated by the Fund for Animals; b) by the ASPCA's mobile
sterilization facility; or c) are released with a sterilization requirement. Arrangements with the Have-A-Heart
clinic and the ASPCA result in the sterilization of fewer than 30 animals per week.
--------------------------------------------------------------------------------
FN58/ CACC Adoption Contract.
--------------------------------------------------------------------------------
The majority of animals released from the other three shelters are released with a sterilization requirement.
Some male animals are neutered by staff veterinarians, although it was not clear whether adequate facilities
and equipment are available to perform these procedures, or how postoperative monitoring and care is
provided.
As CACC management themselves know, there are inherent problems with each of the above methods of
providing sterilization services. Transporting animals to an outside facility is time-consuming and can add
additional stress for the animals.
There appears to be little or no counseling about postoperative care provided to the adopters/owners of
animals sterilized prior to adoption/release. CACC staff indicated only that written (English-language)
postoperative care instructions are provided. Owners/adopters have no direct contact with veterinary staff
knowledgeable about the procedure performed on their animal or the follow-up care which is required. This
situation seems to present a significant risk for postoperative complications to the patient, as well as a
liability risk to the CACC and the facility providing the sterilization service.
Recommendation: Provision of sterilization services for animals handled by the CACC is currently
disorganized, ineffective, and inefficient. Coordinating sterilization services through these various means is
difficult if not impossible. In addition, this has resulted in poor sterilization compliance, intensive and
time-consuming follow-up, and--of great concern--poor postoperative support for those animals who are
sterilized before adoption/release.
Internal and standardized provision of sterilization services for all CACC facilities should be pursued as a
short-term (three years or less) goal. Those funds which were previously allocated for a spay/neuter
coordinator should be used solely for that purpose.
In conjunction with the Director of Adoptions, this team should explore the establishment of sterilization
facilities for, in, or near all five shelters which will: provide sterilization before adoption in a safe, efficient,
and cost-effective manner for all animals adopted/released from the CACC; create and maintain
standardized procedures, protocols, and record-keeping systems for these facilities; monitor sterilization
compliance for those few animals released to owners/adopters without being sterilized (for health reasons or
other extenuating circumstances); and serve as a liaison to the local veterinary community, ensuring that
they are knowledgeable about how and why the CACC provides in-house sterilization services. In addition,
they should ensure that postoperative patients presented to private practitioners receive coordinated and
consistent care.
In addition, a legally-binding sterilization contract (separate from the adoption contract) should be used for
the situations in which an animal chosen for adoption or release to an owner is deemed temporarily
unsuitable for sterilization surgery by the attending veterinarian. The decision to release an animal with a
sterilization contract should be made in consultation between the attending veterinarian and the adoption
counselor, with the animal's health status and the adopter's application being considered. The contract
should be signed by the adopter/owner at the time of release, indicate that they have received a copy, and
be kept on file by the animal care and control agency. The sterilization contract should indicate the final date
by which the procedure must be performed, as well as documentation required to verify the procedure.
Sterilization follow-up procedures should closely monitor unsterilized animals to ensure compliance.
Animals presented to the public for adoption should be of minimum health status in order to increase the
likelihood that they will be suitable surgical candidates. They should be eight weeks of age or older, free of
symptoms of infectious disease, and of good body condition. Animals who are not good candidates for
sterilization surgery should not be offered for adoption to the general public, but may be offered to those
adopters who may also be offered a sterilization contract, or placed in temporary foster care until deemed
appropriate for surgery.
In order to protect the health of the animal and the liability of the veterinarian, only the attending
veterinarian should determine a particular animal's suitability for sterilization surgery when presented.
Adoption staff and adopters should be well aware that a particular animal may not be deemed suitable for
surgery, and those adopters who may not be offered a sterilization contract (for whatever reason)should be
aware that their initial choice of animal may not be approved for adoption based on unsuitability for
sterilization surgery.
The sterilization of sheltered animals requires unique skills of the veterinarian and veterinary staff. They
should understand the characteristics of shelter populations and take these into consideration when
evaluating animals as anesthetic/surgical candidates, and when determining how best to provide pre- and
postoperative care. They should be knowledgeable of and experienced at sterilization of prepubertal,
geriatric, and immunocompromised patients, and be familiar with methods for safely and efficiently sterilizing
a number of animals in succession.
In-house sterilization of adopted/owned animals requires specific facilities dedicated to that purpose.
Specialized equipment used for the evaluation, monitoring, and pre- and postoperative care of sheltered
animals is also required. Adequate funding for facilities, equipment, personnel, drugs, surgical supplies, and
administrative support is essential to safe and efficient sterilization of sheltered animals.
The 24-hour period immediately following sterilization surgery is when post-surgical complications are most
likely to occur. These may range from minor--bleeding or swelling-- to life-threatening--dehiscence (opening
of the surgical incision) or internal hemorrhage.
Arrangements for postoperative monitoring and care on the evening of the day of surgery can be made in
one of two ways:
Animals can be released to their owner/adopter. This requires careful counseling of the owner about how to
monitor and care for the animal, as well as arrangements for skilled personnel to be available to assist the
owner should post-surgical complications occur before the sterilization facility is again open and available.
This may be done by having a trained staff member "on call" throughout the night to answer questions and
concerns from animal adopters/owners, or by pursuing and maintaining close relationships with local animal
emergency hospitals, to which owners/adopters can be directed.
-or-
Animals can be provided overnight recovery before release. This option requires space for recovery
facilities (which may be the same space used for pre surgery animals, if surgery is not performed on
consecutive days), as well as overnight monitoring by personnel trained to provide postoperative care and
to recognize signs of complications. Arrangements must also be made to deal with any complications that
cannot be addressed by that staff member, i.e., calling in a staff veterinarian or transporting the animal to a
local emergency animal hospital.
In the interim, it is essential that the CACC continue to carefully monitor sterilization compliance. Better
coordination of postoperative care support for adopters/owners of animals sterilized prior to release from the
Manhattan clinic should be pursued.
Lastly, CACC veterinary staff, in cooperation with the Fund for Animals should continue seeking funding to
work with area veterinarians to encourage early-age spay/neuter (the sterilization of animals at the age of
8-12 weeks). This procedure has been endorsed by The HSUS, American Humane Association (AHA), the
American Society for the Prevention of Cruelty to Animals (ASPCA), the American Veterinary Medical
Association (AVMA), the American Kennel Club (AKC), Cat Fanciers Association (CFA), Fund for Animals,
National Animal Control Association (NACA), and many other national and regional animal protection
groups./59
--------------------------------------------------------------------------------
FN59/ The HSUS Shelter Sense reprint on "Early-Age Spay/ Neuter Programs and Services"
--------------------------------------------------------------------------------
VOLUNTEERS
With the exception of a few committed individuals currently volunteering in CACC shelters, at the time of our
visit, the CACC volunteer program had been suspended, pending review and restructuring. Reports of the
program prior to its suspension indicated that many of the volunteers were dissatisfied with either their roles,
the limitations on their authority or policies and procedures of the organization. Some staff reported such
frustration with former volunteers that they were not enthusiastic about seeing the program restored at all.
Others felt that it simply had to be better structured, with clearer expectations for the volunteers, more
screening, and more control.
The program as it had been operated reportedly had no job descriptions for the volunteers, no formal
screening or interview process, no formal orientation or training, and no clear reporting structure. Staff
perception was that some volunteers were uncomfortable with CACC's need to euthanize and saw their work
with the organization as a way to "change" the way things were done, and to meet personal agendas.
The new Director of Adoption and Volunteer Services, who joined the staff earlier in the year, has plans to
reestablish and expand the volunteer program, but under a much more structured format.
At the Brooklyn facility, volunteers handle off site adoptions, a relationship everyone seems to be
comfortable with. The volunteers are said to be reliable and accepting of CACC adoption procedures,
though it is unclear how this is measured.
Recommendations: Without a formal program of job descriptions, training, evaluation, and supervision,
volunteers should not be used or encouraged at the CACC until such time as these can be completed. We
suggest this for two primary reasons:
1) The current CACC leadership is still considerably new, given the scope of operations and responsibilities.
Attention needs to be paid to the development of thorough protocols and procedures before volunteers can
be effectively integrated into the operations; and
2) Volunteers can be extremely helpful but require a great deal of guidance and organization. Without a
coordinated volunteer program, there can be no successful results.
Future plans outlined for HSUS E-Team members include a strong volunteer program. Volunteers would
continue to participate in the popular programs such as dog walking and offsite adoptions. However there is
an interest in utilizing volunteers in areas other than adoption and handling, which require the most training.
The proposed volunteer program would also include a qualification process. Selected individuals would
complete a comprehensive training program which provides a basic orientation to the CACC philosophies,
facilities, operations and protocols, and would also include a familiarization with handling, equipment, and
basic safety.
The following information has been adapted from The HSUS magazine, Animal Sheltering, for your
consideration:
While the long list of benefits offered by a volunteer program are immediately compelling, the pitfalls of a
quickly conceived or poorly managed program can be crippling. Difficulties involving volunteers are rarely
brought about by the volunteers themselves; they nearly always arise as a direct result of a shelter's own
planning and policies, or lack thereof.
Municipal animal-control agencies generally recruit fewer volunteers than private agencies, but the conflicts
are often equally problematic. In every case, communication is the key. A poorly developed program
designed to compensate for staff shortages, for example, will often detract from the efforts of full-time staff
and will rarely help the animals in the shelter. If the ship is already sinking, bringing aboard more
passengers will only hasten the descent.
More often than not, hastily organized programs leave shelters with dozens of ineffective, uncommitted
volunteers who stop by only on rare occasions to walk a dog or two; or worse, a handful of well-meaning but
ill-informed volunteers who seek to change the shelter's philosophy and eventually undermine its mission.
What's more, a few unhappy volunteers who quit in frustration may go on to tell others of the shelter's failing
program, ruining your organization's reputation in the process.
For some shelters, a volunteer program is not worth the investment. Certain animal care and control
facilities, for example, do without volunteer programs because liability concerns or labor issues make it
impractical or impossible to place volunteers in positions of responsibility. Other humane organizations lack
the resources necessary to oversee such a program. Simply put, a shelter can be successful without
volunteers.
But if your organization is interested in investing in the many benefits that volunteers can bring to your
shelter and the animals, remember that volunteers will give you their time and talents free. Just remember
that you'll still need to invest plenty of time and energy into the program. It takes a great deal of work to
recruit, screen, train, and retain volunteers in an animal shelter.
To ensure that staff and volunteers understand their respective roles in the organization, sit down with your
staff and review the following policy considerations before bringing the next volunteer on board:
What positions will be assigned to volunteers? What will their job descriptions consist of? What duties will
they not be allowed to perform?
What will be the minimum age for volunteers?
Will volunteers wear uniforms, color-coded clothing, or name tags?
Will volunteers be allowed to work directly with the public?
How much contact will volunteers have with the animals?
What areas of the shelter will volunteers be permitted to work in?
How, when, and where will orientations be conducted?
How many hours of training will be required? Will it vary by position?
How will volunteers record the time they donate?
Will there be a certain minimum time commitment? Number of hours per week? Number of months the
person will promise to participate?
How will staff-volunteer conflicts be resolved?
What will be the protocol for reviewing and dismissing volunteers?
What actions will be taken if a volunteer is injured "on the job"?
Will your shelter provide separate insurance coverage for volunteers or will coverage be provided under the
shelter's general policy?
Because shelters differ greatly in size and scope, few answer these questions the same way. Some shelters
need plenty of help with animal care, while others have a list of dog walkers longer than the kennel runs
themselves. Some shelters hold scheduled orientation sessions once a month, while others wait until they've
gathered enough interested applicants. Insurance agreements and legal obligations also vary from shelter
to shelter, so contact your agent and your local labor department to make sure your volunteer program is
adequately protected.
Write down the rules and regulations that will help you manage the volunteer program and help volunteers
learn their way around your shelter, both literally and figuratively. These policies would tell volunteers how to
sign in and log the number of hours worked; what to wear to the shelter; what areas of the facility are
off-limits; how and when they should interact with the staff, public and/or the press; whether and where they
can eat or smoke on the premises; how to handle grievances; and what to do in the event they are injured at
the shelter.
After you've drafted these initial volunteer policies, take a three-hole punch to the page and insert that
document in a binder. You're well on your way to tackling the next obstacle--creating a comprehensive
volunteer manual to hand to each of your volunteers. Remember that most of the people who volunteer
know only that they want to help animals. They may have little or no understanding of the actual work your
shelter does or the philosophical issues surrounding animal sheltering.
So in addition to basic rules and policies, make sure that the pages of that manual contain:
the goals of your organization
the goals of the volunteer program
the services your shelter provides
volunteer "job descriptions," including the responsibilities and duties of each position
your shelter's philosophy on complicated issues such as euthanasia and adoptions
general information about the shelter including operating hours and important phone numbers
shelter statistics regarding intake, adoption, and euthanasia
shelter policies such as adoption procedures and holding periods
a brief history of your shelter and some of its achievements
Unfortunately, because of this overwhelming interest, some volunteer coordinators seem to feel that the
shelter is there for the volunteers rather than the other way around. Be careful not to make that mistake.
During the recruitment process, you should look for energetic individuals with specific goals and talents.
You're under no obligation to find opportunities for every willing volunteer. You just need to find a willing
volunteer for every opportunity.
Make sure that every volunteer understands that performing euthanasia is stressful on the staff, and that
even though volunteers will not be asked to take part in the process, they will be expected to support those
who do. In fact, if volunteers and staff are to truly understand each other, volunteers must be educated
about the stress involved in every aspect of sheltering, from dealing with the public to euthanizing an
abused animal. In addition, managers want volunteers to help staff members do their jobs but full-time staff
may be threatened by the presence of volunteers or feel that volunteers understand little about the
concepts of animal protection and the complexities of shelter work. Workers may also feel that volunteer
training requires too much of their time, and may be frustrated by the constant stream of questions posed by
uninformed volunteers.
When full-time staff become frustrated with volunteers' inquiries, remind them that in some ways volunteers
are only one step removed from members of the general public, and that in most cases they are only
seeking an honest explanation.
--------------------------------------------------------------------------------
