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HomeMy WebLinkAboutCOM 0376.000 2000-2002V'AtY�OF 0, '?1g. AL KONISHI County Clerk OFFICE OF THE COUNTY CLERK County of Hawaii Hawaii County Building 25 Aupuni Street Hilo, Hawaii 96720 Telephone: 961-8255 Facsimile: 961-8912 October 9, 2001 TO: James Y. Arakaki, Chair and Council Members FROM: Constance R. Kirkt-egislative Auditor DONALDIKEDA Deputy County Clerk CONSTANCE R. KIRIU Legislative Auditor RE: Transmittal of Independent Evaluation of the Animal Control Program of the County of Hawai `i For your review and action, we are transmitting a document titled Independent Evaluation of the Animal Control Program of the County of Hawai `i prepared by the National Animal Control Association (NACA) as authorized by Council Resolution No. 49-01 together with written responses received from the Office of the Corporation Counsel (October 8, 2001), the Finance Department (October 8, 2001), the Prosecuting Attorney's Office and the Police Department. The written response from the Hawaii Island Humane Society will be forwarded to the Council when received. NACA REPORT REVIEW PROCEDURE Upon receipt of NACA's evaluation on September 18, 2001, we forwarded copies of NACA's draft to Grayson Hashida, Executive Director of the Hawaii Island Humane Society, William Takaba, Finance Director, Police Chief James Correa, Corporation Counsel Lincoln Ashida and Prosecuting Attorney Jay Kimura. Each recipient, "in accordance with standard and acknowledged auditing protocols," was requested to "review NACA's report and submit your written response ... to the Legislative Auditor's Office no later than October 9, 2001." For your information, the Hawaii Island Humane Society requested an extension for submittal of its comments due to a scheduled vacation by its executive director and the length of time required by the board's executive committee and the entire board of directors to coordinate an agency response. HIHS, with their assent, was granted a one-week extension until October 16, 2001 to submit its response. A courtesy draft copy was given to Mayor Harry Kim, although no written response from the mayor was requested. A draft copy was also offered to Council Member Nancy Pisicchio for her information with the mutual understanding that the document was a confidential draft and agencies' comments were forthcoming. This offer to a council member with specific interest in a report is not unusual provided the protocol is respected. Comin. N9. bile No. lief. To:—u� p 9 �1 Ref. Date_OCT :..:... —x. With regards to Councilwoman Pisicchio's interest, she initiated Resolution 49-01 authorizing the independent evaluation. She participated in the evaluation of the two bids received in response to the Council's Request for Proposals along with the other evaluation team members Liana Cox- Ishizu and Rory Flynn of the Auditor's Office. With assistance from our office, Ms. Pisicchio scheduled and hosted two evening public meetings to facilitate public testimony to the two -member NACA site visit team on June 6, 2001 at the County Councilroom in Hilo and June 8`h at the Kona Outdoor Circle in Kona. To promote public input and discussion with the visiting NACA team, she placed ads at her own expense in the West Hawaii Today and the Hawaii Tribune Herald to notify the public of the scheduled public meetings. On June 11, 2001, Ms. Pisicchio, Legislative Assistant Rory Flynn and I participated in a one-hour "exit interview" (conference call) with John Mays and Mary Metzner of NACA. The exit interview or conference is also standard in audit reviews. GOVERNMENT AUDITING STANDARDS, RESOLUTION NO. 131-97 AND REPORTING PROTOCOL The procedure for releasing the draft NACA report as a public document has been questioned. This procedure has been applied to all prior independent financial audit reports and numerous special studies and performance/program reviews conducted by this office for at least two decades. This procedure generally reflects the reporting standards of the U.S. General Accounting Office set forth in the Government Auditing Standards (GAS), 1999 Edition known as the "Yellow Book" being transmitted to you under separate cover. These audit protocols are used by government auditors throughout this state and the nation, including State Auditor Marion Higa. The purpose of the standards is to "help provide accountability and to assist public officials and employees in carrying out their responsibilities. The standards are more than a codification of current practices. They include concepts and audit areas that are still evolving and are vital to the accountability objectives sought in auditing governments and their programs and services." (GAS at page 8). Although we are not a true `audit' office under the present organizational structure, we have historically applied many of the concepts to our reports because accountability and credibility are significant attributes important to the council, county government and the people we serve. When it relates to the process of obtaining agency comments, Chapter 7 of the Government Accounting Standards, "Reporting Standards for Performance Audits: Views of Responsible Officials," reads: 7.38 Auditors should report the views of responsible officials of the audited program concerning auditors' findings, conclusions, and recommendations, as well as corrections planned. 7.39 One of the most effective ways to ensure that a report is fair, complete, and objective is to obtain advance review and comments by responsible auditee officials and others, as may be appropriate. Including the views of responsible officials produces a report that shows not only what was found and what the auditors think about it but also what the responsible persons think about it and what they plan to do about it. [emphasis added] 7.40 Auditors should normally request that the responsible officials' views on significant findings, conclusions, and recommendations be submitted in writing. When, in these cases, written comments are not obtained, oral comments should be requested. 7.41 Advance comments should be objectively evaluated and recognized, as appropriate, in the report. Advance comments, such as a promise or plan for corrective action, should be noted but should not be accepted as justification for dropping a significant finding or a related recommendation. 7.42 When the comments oppose the report's findings, conclusions, or recommendations, and are not, in the auditors' opinion, valid, the auditors may choose to state their reasons for rejecting them. Conversely, the auditors should modify their report if they find the comments valid. In our desire to provide the Council with a fair, objective, comprehensive and balanced report, we closely follow this comment process. The manner of transmittal of NACA's report to the Council, including responses from concerned agencies, mirrors the transmittal of the County's annual independent financial audit and special studies on glass recycling, marijuana eradication, and nonprofit leases. In the case of the Special Study on the Status of Animal Control in the County of Hawai `i issued by the Auditor's Office on November 13, 2000 (Communication 396.032), the administration and the Hawaii Island Humane Society were given an opportunity to respond to the study. We noted that a "recent flooding disaster had delayed the response of a few agencies" and proceeded to transmit comments to the Council as they were received. We did not, however, delay the issuance of the study due to any tardy receipt of appended comments. Likewise, in this instance, we are observing the declared deadline date for comments (October 9, 2001) and releasing the report accordingly. Moreover, on August 20, 1997, the Council adopted Resolution No. 131-97 that formalized the procedure for issuing audits, program reviews, expanded research and special studies." The resolution stated, in part, that the "Preliminary draft is transmitted to the affected agency and Mayor for written comments and any comments received are included in final report. After final revisions are made, a final draft is submitted to the Council." NACA will submit their comments in writing or respond verbally at a scheduled Human Services and Economic Development Committee meeting. CONCLUSION Recognizing that the Council and the Legislative Auditor's Office are "joined at the hip," we endeavor to protect and maintain the integrity and independence of audits and investigative studies performed under our purview. We will not succumb to external pressures and demands to the premature release of an incomplete work product. The public and any professional firm with whom we contract deserve more. The Legislative Auditor's office is committed to forthright and accountable transmittal of public information. Currently, we are working with Data Systems Department to post the NACA report and all appended agency comments on the County of Hawaii website (www.co.hawaii.hi.us/). Copies will be available at the County Clerk's Office in Hilo, the Council's Kona Branch Office and the Hawaii County Services Office in Kailua-Kona. Thank you very much. Enc. NACA Report INDEPENDENT EVALUATION OF THE COUNTY OF HAWAII National Animal Control Association September, 2001 National Animal 0 control fal-11IN Association THF PROFESSIONALS NACA NATIONAL ANIMAL CONTROL ASSOCIATION September 14, 2001 TO: Chair and Members of the County Council County of Hawai'i, Hilo, Hawai'i Johnnie W. Mays Y Executive Director P.O. Sox 480851 Kansas City, MO 64148 Please find attached a copy of the NACA Independent Evaluation of the Animal. Control Program of the County of Hawaii based on a management and staffing study of the Hawaii Island Humane Society. The Study Team appreciates the cooperation and support from members of the Hawaii Island Humane Society, Hawaii County government, local support groups and the community at large. If you need further information, or have any comments or questions, please do not hesitate to contact me at 913-768-1319. Sincerely, J �. c_. Johnnie W. Mays National Animal Control Association A non-profit corporation representing the interests of animal control County ®f Hawaii Confidential Evaluation Report This document was written and prepared for the County of Hawaii by the National Animal Control Association, Kansas City, Missouri. No part of this publication may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording, or any information storage and retrieval system, without permission in writing from the County of Hawaii. Given the confidential nature of the findings contained in this report, only a very limited number of copies of the report are being distributed for review by certain persons. In order to properly monitor the distribution of this report, each copy is numbered and logged with the recipient's name. Table of Contents Topic Chapter Number Service Delivery Area Chapter 1 Administration Communications Chapter 2 Chapter 3 Shelter Operations Field Operations Chapter 4 Chapter 5 Occupational Safety Procedures Chapter 6 Licensing Chapter 7 Employee Attitude Survey Chapter 8 Community/Interagency Relations Chapter 9 Hawaii County Ordinance Review Chapter 10 Proposed Implementation Plan Chapter 11 Copy Number recipient Copy #1 Rory Flynn, Office of the Legislative Auditor Copy #2 Rory Flynn, Office of the Legislative Auditor Copy #3 Rory Flynn, Office of the Legislative Auditor Copy #4 Rory Flynn, Office of the Legislative Auditor Copy #5 Rory Flynn, Office of the Legislative Auditor Copy #6 Rory Flynn, Office of the Legislative Auditor Copy #7 Rory Flynn, Office of the Legislative Auditor Copy #8 Rory Flynn, Office of the Legislative Auditor Copy #9 Rory Flynn, Office of the Legislative Auditor Copy ##10 Rory Flynn, Office of the Legislative Auditor Copy #11 National Animal Control Association Copy #12 National Animal Control Association CD-ROM Ro Flynn., Office of the Le islative Auditor The Copy Number of this report is: ,46iw4t mal:.4 Aaagwm r&at e&euA4 ew4 a tfre aaysnAt u as adsdle Qeee&V to e6mca ate tie eauaea Ery coex�fiaeaia y uei the teals d e&ea&" ca nal e4mzceaueut. The following excerpt appears in the International City Manager Association's (ICMA) Management Information Report on "Local Animal Control Management," Volume 25, Number 9, September 1993: A good Animal Control program is a community responsibility and should be budgeted as any other program or service available to citizens. It needs to go beyond the old-fashioned approach to Animal Control services, which consisted primarily of a dog-catcher and a pound. If the local government focuses only on operating a skeletal shelter and catching and destroying thousands of cats and dogs, animal problems will create constant headaches for local government officials, who must deal with irresponsible animal owners on the one hand, and non -pet -owners, garden clubs, parent -teacher associations, and other groups that want animals controlled on the other. Finally, poor Animal Control can become a local government liability if citizens seek redress for injury and damage caused by free -roaming animals. The most common obstacle to establishing an effective animal care and control program - as it is to some degree for virtually all government programs - is the problem of funding. In this era of perennial budget deficits, city and county officials are often tempted to strip down Animal Control programs to the point of total ineffectiveness. But in this area of government responsibility so vital to public health and safety, local officials should avoid shortsighted decisions." The article also states that, "Cities and counties can manage animal -related problems in a fiscally responsible way. Animal Control can be funded partially through user fees, a deficit-reduction strategy governments apply to everything from parks to motor vehicles. Licenses for dogs and cats are the user fees of Animal Control. Dog and cat owners should shoulder much of the burden of Animal Control costs; furthermore, irresponsible dog and cat owners should be assessed the largest part of that burden. Public officials, police departments, public health officers, and the citizens they serve in both urban and rural areas will all benefit from a comprehensive animal care and control program that reduces costs while it eliminates many other problems. General public funds need to be allotted to finance the program as necessary. However, the total program can be partially self-funded if revenues from the following sources are set aside for this purpose: ❑ Income from license and permit fees. ❑ Impoundment fees charged to persons whose animals have been picked up. • Boarding and redemption fees charged to owners who recover their pets. ❑ Citation fines. • Fees from the quarantine of animals. Ia Adoption fees. Q Private donations to the local government earmarked for the animal shelter. Moreover, Animal Control is an investment in reduced costs - monetary and otherwise - for the future. (End of excerpt) STUDY TEAM This study was conducted by two animal control/humane professional consultants. The members of this team have extensive training and experience in the animal control and humane field. ACKNOWLEDGMENTS The NACA Study Team would like to thank Grayson Hashida and the entire staff at the Hawaii Island Humane Society (HIHS) for their cooperation and kindness. A special thanks to Rory Flynn, Office of the Legislative Auditor, for the information he provided the Study Team. While NACA has recommended several changes for improving the structure and productivity of HIHS, the County of Hawaii government, community leaders and officials should recognize the importance of an Animal Control program to the citizens and animals they serve. It should be noted that these recommendations are advisory in nature and are based on the observations and fact-finding of the Study Team. The final determination regarding the implementation of this plan, or parts thereof, should be left to the HIHS staff and the governing authorities. COMPARATIVE USE OF DATA HIHS was not able to provide the Study Team with all the data required to provide a detailed, comparative analysis. However, most of the data that was obtained was presented in a format universally used in the animal control/humane field. The HIHS staff provided most of the data utilized in this study. The staff was very accessible to the Study Team and accommodated requests in a timely manner. After the initial written requests for information, all further needs were conveyed verbally or in writing to management. The need for an updated policy/procedure manual is a shortcoming the agency will need to immediately address. The current manual was described as "outdated" and has limited use by workers as a point of reference. The lack of some information also made it difficult for the Study Team to distinguish current procedures from written policies. It should be noted that HIHS is presently developing a new policy and procedure manual which will be reviewed internally by all HIHS staff members and released this year. In addition, the lack of Animal Control tracking data (specifically service calls) made it impossible for the Study Team to determine specific needs within Field Operations. There is no evidence that the data obtained by the Study Team was edited or tampered with in any manner. Introduction -1 PURPOSE STATEMENT The purpose of this evaluation is to review the programs and operating policies and procedures of the Hawaii Island Humane Society and report on the effectiveness of the agency's program results, the efficiency of its operations, and the adequacy of its operating policies and procedures. The study requirements regarding this review may be found within the "Request for Proposals fora Professional Independent Evaluation of the Animal Control Program of the County of Hawaii" (due to space considerations, this information is not included in this report). This needs assessment was managed in seven distinct phases: Z) Data Collection. • Interviews. • On-site observations and fact-finding. • Analysis of data. Qi Comparative analysis. ID Alternatives and recommendations. Q Comprehensive written report. During the on-site visit, the Study Team met with representatives of the organization. These individuals were asked specific questions based on the information provided on-site and in advance of the team's arrival. HIHS staff members identified problems and unique circumstances affecting their agency, as well as distinguishing their goals and objectives, focusing on immediate needs and long-term goals. The Study Team also contacted representatives from local organizations and the community in an attempt to determine the levels of support available for the agency to meet the citizen's demands for service. The National Animal Control Association utilized 38 pages of workplans during the course of this study, which consisted of 409 questions and/or data gathering requirements covering 28 specific program areas. These areas include: Z) Preliminary Meeting ❑ Training Programs [) Organization/Staffing ❑ Policies and Procedures Z) Quality of Personnel 1J Employee Morale & Productivity D Structure :I Vehicles Q Facilities �J Uniforms D Work Schedules [J Enforcement Procedures ID Communications D Courtroom Procedures D Records Management D Educational Material/Programs [J Human Resource Management [J Interagency Relations IJ Mission of the Department 1J Euthanasia Methods/Procedures • Community Relations J Adoption Methods/Procedures • Department Budget J Impound Methods/Procedures • Equipment ❑ Occupational Safety Procedures • Computer Support J Licensing Programs Introduction -2 These workplans incorporate standards from the following nationally -recognized humane animal organizations: a American Humane Association ❑ Animal Protection Institute Ij The Humane Society of the United States a National Animal Control Association Within some areas of the agency, standards have not yet been developed by any of the listed organizations. In these instances, NACA utilized "current industry trends" based on previous NACA evaluations and statistical data generated from other Animal Control/Care agencies located across the United States. The final report includes recommendations based on the Study Team's findings. These recommendations are also assigned a "priority" classification listed as follows: j Rating #1 - An immediate need. j Rating #2 - Should be implemented within 3-6 months. j Rating #3 - Should be implemented within 6-12 months. Once a decision is made on which recommendations to implement, the County of Hawaii should require progress reports from HIHS. The Executive Director might want to require monthly progress reports from his staff. The County of Hawaii should also require a follow- up review of the recommendations within six months. Legal Disclaimer Since some of the information included in this study was obtained verbally from current employees, the National Animal Control Association and its consultants do not warrant or guarantee the accuracy of these statements or events described within this report. Verifiable data, in some instances, was not made available to the Study Team. Recollections of historical events, which may be mentioned in this report, are provided by staff members. The Study Team has attempted to gather accurate data in determining the needs of the agency, however, as with all humans, errors sometimes do occur. Introduction -3 Definitions and Acronyms The following definitions and acronyms are used in this report: AHA - The American Humane Association. Animal Control/Care - A term used by NACA to encompass any organization involved in animal protection and welfare, to include government animal control departments, humane societies, societies for the prevention of cruelty to animals, etc. When used in this report, "Animal Control/Care work" or "Animal Control work" describes the industry as a whole and practices commonly found in this profession. Animal Control Officer - A term used to describe field officers of the Hawaii Island Humane Society. These employees may be defined within the industry as Animal Control Officers or Humane Officers. Animal Shelter - The Hawaii Island Humane Society's animal sheltering facilities. AVMA - American Veterinary Medical Association. IaSDV - Field Service Delivery Vehicle. A term used by NACA to describe vehicles, utilized in Animal Control work, for delivering field service to citizens. HSUS - The Humane Society of the United States. Humane Officer - A term used to describe field officers of the Hawaii Island Humane Society. These employees may be defined within the industry as Animal Control Officers or Humane Officers. ICMA - International City/County Manager's Association. MSDS - Material Safety Data Sheets. NACA - The National Animal Control Association. SOP - Standard Operating Procedures. Introduction -4 EXECUTIVE SUMMARY Quality of Personnel The employees of HIHS are striving to provide an acceptable level of service to the citizens they serve. Insufficient staffing levels and funding -related problems have affected productivity and performance. Complaints from citizens and increased demands for service has created some negative public perceptions of HIHS. Since some of these protests are reasonable, many citizens (and employees alike) are left wondering about the degree of commitment HIHS and County government has for their program. Administration The Hawaii Island Humane Society provides shelter and field services to the citizens of Hawaii County. HIHS operates its own animal holding facility in Keaau, a leased facility in Waimea, and a County -owned facility in Kailua-Kona. The Hawaii Island Humane Society is a nonprofit Hawaii corporation, which operates under the guidance of a 12 -member Board of Directors. HIHS has over 3,000 members who contribute labor and/or financial support. The agency currently has authorized 19 full-time positions and 3 part-time positions for fiscal year 2000-2001 (these numbers are based on data given to the Study Team). The Executive Director, Grayson Hashida, is responsible for the day-to-day operations of HIHS. The review of Administration indicates that: U HIHS should develop a long-range plan that hinges on future expansion and increased service delivery. Every member of the organization should be allowed to participate in the plan's development. Staff members should be provided training in plan development. ❑ The agency should review and revise its policy/procedure manual as soon as possible. This book should then be distributed to all personnel, and employees should be required to "sign off' upon receiving the manual. Policies and procedures should be offered in individual sections to facilitate quick reference and for easy updating. Sample copies of forms, along with an explanation in their use, should also be included. Implementation and revision dates should be predominately displayed. Employees safety issues should be addressed within each procedure. U It is recommended that the HIHS improve the budget process by actually describing contract versus non -contractual services within the budget itself. Such an improvement would possibly eliminate much of the confusion regarding the public's service expectations. In previous NACA evaluations, budgeted amounts are actually identified with a specific service (i.e.: field, shelter and administration). In addition, the Study Team would recommend that the budget separately reflect the cost of Executive Summary - 9 operating each of the 3 shelters. Such information would provide citizens a more accurate assessment regarding the distribution of their tax dollars. �j The County of Hawaii should continue to clarify and enhance the Agreement, to include those suggestions which appear on pages 2-16 and 2-17 of Chapter 2, "Administration. " ID In regards to "Pule 19" and the Badging Process, the County of Hawaii should: 1) Identify an individual (and department) which would be responsible for scheduling the badging classes and to coordinate such arrangements with the other departments; 2) Offer such classes at least twice annually during predetermined months of each year; 3) Develop a training outline defining course goals, accompanied with training materials that the recruit may retain for future reference. In addition, a list of instructors should be developed to enable the County to draw upon a larger pool of trainers in an effort to alleviate concerns regarding staff shortages and scheduling conflicts. Communications Within the HIHS, Humane Officers are dispatched via their own communication service. The agency is striving to provide quantitative and qualitative dispatch services to the citizens within the coverage areas. The system and procedures for Animal Control work place unique demands on them, which require a certain degree of knowledge and patience on the part of the telecommunication staff. After further analysis, the Study Team felt that the agency could further improve in this area by: Q HIHS should consider offering a central, island -wide communications center. Such a center would handle (and route) incoming citizen inquiries among the three facilities, dispatch complaints to officers in the field, and monitor all field activity. Ij The agency should purchase a software program in an effort to capture vital data regarding response times and workload. This software should also provide knowledge of prior animal -related complaints/offenses and perform address and name queries. All service calls should be assigned a case number. In addition, dispatch, arrival and clearance times should be logged for each individual service call. Q Portable radios should be purchase and issued to all field personnel and their use made mandatory. U Field personnel should communicate their location with dispatch (at all times) on any call or follow-up, regardless of the nature. Executive Summary - 2 Shelter Operations Within this work area, the Study Team was provided an opportunity to observe the impoundment, adoption and redemption process, sanitation and disease control, animal feeding schedules, euthanasia and shelter safety procedures. As a direct result of these observations, the Study Team has offered several recommendations to include: J The County of Hawaii should explore the possibility of expanding and renovating its current animal sheltering facility in Kailua-Kona within the very near future. ID HIHS should proceed with plans to expand and improve the Waimea animal sheltering facility as soon as possible. [i HIHS should ensure that all kennels are separated by a solid partition of either steel or concrete, both inside and out. Such partitions must be a minimum of 4 feet in height, with an additional 2 feet of fencing on top of the wall. Q The agency should purchase an animal tracking software program which would capture vital data regarding impounded and reclaimed/adopted animals. This software should also provide knowledge of prior offenses and name queries. Computer and printer upgrades should be offered in all work areas. Additional computer training should be offered to those employees who require it. Workers should be trained in computer usage and software. 0 HIHS should develop uniform animal tracking procedures for all 3 shelters. The Study Team observed varying tracking methods among the facilities (ie: the Keaau facility placed numbered metal identification tags on incoming dogs, while the Kailua-Kona and Waimea shelters did not). Tracking methods should always be consistent and reliable to minimize errors and prevent the agency from being placed in an uncomfortable (liability) situation. In addition, the agency should perform a morning and evening "headcount' of impounded animals to reinforce inventory procedures. ❑ Although not legally required, HIHS should reevaluate its animal holding period for cats. The Study Team felt that the minimum holding time for cats was unusually short, and is not consistent with otherAnimal Control/Care agencies. In addition, the Study Team would recommend the same holding period for both dogs and cats. Field Operations The importance of an Animal Control operation to a community is paramount. Whether measured by the number of Animal Controlpersonnel involved, the portion of budget allocated to field services, or the reality that the Animal Control Officer has over 4 times more public contacts than a police officer, the field officer is the mainstay of Animal Control work. The way in which these individuals carry out their duties affects not only the quality Executive Summary - 3 of life for animals, but also the citizens' perception of Animal Control. The Study Team spent a total of 24.75 hours observing field personnel. Through the observation of field personnel and their working conditions, an insight regarding staffing levels, shift scheduling and current beat structure was obtained. With this information, matched against current industry standards, NACA's recommendations include: The agency should allocate enough field positions as to ensure the needs of citizens are met without undue delays. All calls should be answered before the end of each day. Based on the "calls for service" model, the agency should have a minimum of 14.4 officers on duty, for day -shift. Q With an increase in staffing levels, HIHS should introduce full weekend and limited evening service, and a later end time to daytime shifts. Z) MHS should phase-out all their animal containment units and replace them with a commercial model typically used in the Animal Control profession. All containment units should be fitted with temperature gauges, which may be monitored by officers within the cab of each truck. If needed, air conditioners should be installed. A strict policy or mandate should be introduced regarding animal transport in HIHS vehicles. Q Those employees that require "badging" or recertification should be offered this training as soon as possible. IJ With an increase in kennel staffing levels, HIHS should discontinue the use of field personnel in the kennel and customer service areas. Occupational Safety Procedures An important aspect of any NACA evaluation is to review the occupational safety procedures of the agency. This analysis encompassed the field and kennel areas within HIHS. The need for this review is to not only protect the employee from injury or harm, but to also shield the employer from issues and claims directly resulting from deficiencies within this area. During the on-site process, the Study Team was provided occupational injurylillness statistics and general safety procedures, resulting in recommendations regarding employee safety issues. Some of these recommendations include: U The use of protective equipment/clothing (to include safety footwear) by the agency should be mandated to guarantee employee safety and protect the HIHS from liability. Executive Summary - 4 U. Eye wash stations should be installed in euthanasia, vaccination and chemical dispensing areas should accidental exposure to chemicals or drugs occur. U Although rabies is not present in Hawaii County, it is NACA's standard recommendation that pny employee that has contact with animals should be offered the rabies prophylaxis (this preventative treatment should be made mandatory). j Decibel levels should be tested within the kennel areas to determine if unsafe conditions exist for workers. Ear plugs should be mandatory for employees. Licensing The County of Hawaii ordinance requires that all dogs be licensed and that the license be worn at all times. A review of the "Hawaii County Code, Chapter 4: Animals" and current licensing procedures has led the Study Team to offer the following recommendations for this work area: ID Based on NACA's policy statement, the County of Hawaii should require that all dogs and cats to be annually licensed and to require those licenses to be worn at all times. License fees should be established (at a rate consistent with the national average) in addition to offering differential fees (sexually altered versus unaltered) to encourage pet sterilization. Information regarding the actual number of licenses sold should be tracked annually by the County of Hawaii and offered in a summarized format. 0 In addition to licensing, the Study Team would also recommend that the County of Hawaii and HIHS explore the possibility of requiring the control of cats. This practice is fairly common throughoutthe United States and would enhance current nuisance ordinance compliance. ❑ The County of Hawaii should explore the possibility of allowing local veterinarians to sell license tags. This procedure is fairly common throughout the United States and would enhance the current licensing program. Employee Attitude Survey The Study Team conducted several interviews with HIHS personnel. During the course of these discussions, employees identified areas of strength and weakness within their organization. All of these comments (made by personnel) appear within Chapter 8, "Employee Attitude Survey." These remarks should not be perceived as "employee grumbling," but rather as meaningful, constructive criticism which may pinpoint problems and develop solutions. As a direct result of these interviews and a review of current employee incentive programs, the Study Team has made the following recommendations: Executive Summary - 5 J HIHS should develop a system for routinely collecting relevant information on employee grievances and disciplinary actions. U The agency should institute (within its own organization) an annual awards program to recognize outstanding performance and contributions. 0 HIHS should introduce an employee idea program (with possible financial incentives) to encourage new and innovative concepts in improving service delivery. Community/interagency Relations HIHS attempts to promote itself as a positive influence within the community. A lack of dedicated staffing and resources limits proactive community involvement. The agency believes that it has developed a positive relationship with the media, and that it has used this resource as a way to communicate needs and concerns to the general public. As of late, this contact has been reactive, as HIHS has had to "defend" itself against local criticism. The Study Team feels that the organization must cultivate and improve media relations by providing information relating to the positive aspects of the agency. HIHS should take a more aggressive approach to public relations and "sell" the agency to the community on a continuing basis to increase support among taxpayers and improve its level of funding. After reviewing this area, the Study Team offers the following recommendations to include: U An Animal Control Advisory Board should be established. The new Board should develop and implement its own goals and objectives. The Board should write its own by-laws, defining its purpose and specific goals. A "conflict of interest" statement should also be added to the Board's by-laws. New Animal Control Advisory Board members should be provided training or instruction regarding their Board responsibilities. All roles and functions should be clearly defined. J The County should consider reassigning the administration of the Animal Control contract to an agency that may be a more "natural fit" and possesses some knowledge of public safety and health issues, such as the Health Department or Police Department. Of course, the transfer of such responsibilities should include additional financial and administrative support, and training for those involved in this process. J While the Study Team sympathizes with HIHS regarding the moral dilemma of adopting out animals which may be exposed to possible injury, the Study Team believes that responsible pet owners, to include pig hunters, should not be excluded from the adoption process. Executive Summary - 6 a In the Study Team's opinion, the County of Hawaii may be better served by pursuing other means of field service delivery, including abandoning the current operation and building a new field program from the ground up. It is the recommendation of the Study Team that the County of Hawaii should consider the establishment of an Animal Control enforcement division within the Hawaii County Police Department or the Health Department. Shelter services could continue to be outsourced to a local humane organization. Information regarding the proposed "takeover" of HIHS field operations may be found within Chapter 9, "Community/Interagency Relations" under "Starting an Effective Animal Control Program. " Hawaii Couniv Ordinance Review The Hawaii County Animal Code (HCAC) appears to be poorly organized and lacking in major areas such as definitions of terms and appropriate penalty levels. There are ample examples of attempts at piecemeal corrections that are reflected in the disparity between the penalty for poisoning a dog ($10 — 1980) and allowing a dog to stray more than three times ($500 or 100 hours of community service —1995). Unfortunately these "corrections" seem to have accomplished more, rather than less, confusion. The changes also illustrate that the HCAC has sections that are over twenty years old. Animal care and control best practices have changed dramatically since 1980. ❑ A review of current County of Hawaii ordinances indicates a need for improvement. The new Animal Control Advisory Board, the County of Hawaii, HIHS and the community should work together to update its ordinances. ,Executive Summary - 7 Service Delivery Area National Animal 0 control Associati®n THE PROFESSIONALS CHAPTER 1 SERVICE DELIVERY AREA This chapter includes a brief overview of Hawaii County and the Hawaii Island Humane Society (HIHS) organizational structure. The Setting For the purpose of this report, any reference to population is based on information supplied by the County of Hawaii. Population Growth - Hawaii County 2000 1995 1990 1985 1980 1975 148,677 137,761 121,458 105,900 92,900 77,400 Source: County of Hawaii - Data Book 2000 Service Delivery Areas The County of Hawaii contracts with HIHS to "carry out the County's Animal Control program pursuant to Chapter 4 of the Hawaii County Code and Chapter 143 of the Hawaii Revised Statutes." HIHS is responsible for animal protection/control within the entire County of Hawaii (4,028 square miles). The History and Purpose of the Hawaii Island Humane Society, which appears within the agency's Volunteer Handbook, offers the following summary regarding service delivery: Animal Control services are provided under contract with the County of Hawaii. The extent of these services and the budget that supports them are negotiated each year with the County. The remainder of the programs provided by HIHS are funded by donations. It is important to understand that HIHS is not a county agency and that the cost of providing many services is not covered by the County contract. Though united in a common mission with many humane organizations across the country, the Hawaii Island Humane Society is a separate, individual organization, which receives no funding from national organizations such as the Humane Society of the United States, the American Humane Association or National SPCA. No donations are received from the Aloha United Way, the state or federal government. Private donations make the following programs possible: • Adoptions. • Spay/Neuter for our adoption program. L Educational programs and shelter tours. U Veterinarian care for our animals. Lj Volunteer programs. U Community programs to educate the public. (End of summary) Service Delivery Area 1-1 Organizational Structure HIHS is a non-profit 501 (c) 3 corporation governed by a 12 -member Board of Directors. The Executive Director is chosen by the Board to manage all aspects of field and shelter operations and their personnel. A review of data confirms that the agency is managed by Grayson Hashida, who is the Executive Director. Positions within the organization's operation are funded by taxpayers within Hawaii County and HIHS. The Executive Director is responsible for a wide variety of administrative duties and directs the daily operations of the agency. The chart located at the end of Chapter 2, "Administration," details current organizational structures. Political Structure The State of Hawaii offers only 2 levels of government: State and County. The Island of Hawaii is one single governmental unit, with no individual city or municipal governments. The County of Hawaii County operates under a Mayor/Council form of government. This form of government is a representative system in which the Mayor and Council oversee the delivery of public services. The County Council consists of a 9 -member board representing 9 county districts, and the popularly -elected mayor. The Director of the Finance Department, as the contract administrator, is responsible for overseeing HIHS. The day-to-day management of HIHS operations is the responsibility of the Executive Director. Service Delivery Area 1-2 L National Animal 0 control Association THE PROFESSIONALS CHAPTER 2 ADMINISTRATION Organization & Staffing The administrative offices for the Hawaii Island Humane Society (HIHS) are located at 74- 5225 Queen Kaahumanu Highway in Kailua-Kona. The agency provides shelter and field services to the citizens of Hawaii County. HIHS operates its own animal holding facility in Keaau, a leased facility in Waimea, and a County -owned facility in Kailua-Kona. The Hawaii Island Humane Society is a nonprofit Hawaii corporation, which operates under the guidance of a 12 -member Board of Directors. HIHS has over 3,000 members who contribute labor and/or financial support. The agency currently has authorized 19 full-time positions and 3 part-time positions for fiscal year 2000-2001 (these numbers are based on data given to the Study Team). The chart depicted at the end of this chapter detail the current organizational structure, the various positions and the supervisor -to -line personnel ratio. The Executive Director, Grayson Hashida, is responsible for the day-to-day operations of HIHS. Mr. Hashida has been employed by the agency since February 18, 2000. The normal work schedule for Mr. Hashida is 8:00 a.m. to 4:30 p.m., Monday through Friday. The organization complies with equal opportunity standards and currently has 20 total employees. HIHS staff positions are funded by county taxpayers and/or the HIHS. The following chart reflects current staffing levels, as of June 12, 2001: HIHS Positions Contract - HIHS Funding % Executive Director (FT - 1) 80%-20% Director of Operations/Keaau Manager (FT -1) 100%-0% Administrative Assistant (FT - 1) 50%-50% Accountant/Bookkeeper (FT - 1) 80%-20% Kona Shelter Manager (FT - 1) 100%-0% Staff Veterinarian (PT - 1) Humane Officer (FT - 10) 50%-50% 100%-0% Animal Health Technician (FT - 2) 50%-50% Kennel/Shelter Assistant (PT - 2) 100%-0% Community Program Coordinator FT -2 50%-50% Source: HIHS Administration 2-1 At the time of this study, both Community Program Coordinator positions were vacant. In addition, 2 Humane Officers assigned to the Keaau facility were designated as "light" duty. The Executive Director is accountable for a wide variety of administrative duties. A review of this employee's job description indicates that the position's primary purpose is to "effectively and efficiently direct, manage, administer and support the operations, programs and budgets of the Hawaii Island Humane Society." Kailua-Kona Facility The agency has an organizational chart, and individual positions are characterized. In addition, work areas are specifically identified. The majority of HIHS employees are cross - trained to function in other work areas, such as field, shelter and office operations (some workers posses a knowledge of multiple work areas, however they may not be able to completely fulfill those responsibilities). While the Study Team recognizes that there are many organizational structures in Animal Control, administrators often select a structure that best fits the department. The current structure is based upon nature of services. This seems to be the optimum organizational structure. It is apparent, however, that some responsibilities need to be shifted to relieve "backlogs" and improve agency performance. The recommended changes are explained in this report. The current organizational structure defines management positions, and line personnel are also identified. Each work area does offer some level of supervision: Area - Positions Supervisor Accountant, Administrative Assistant, HIHS Community Program Coordinators, Staff Vet Executive Director Kona & Waimea Field & Shelter Staff Shelter Manager Keaau Field & Shelter Staff Director of Operations/Manager Source: HIHS The Director of Operations is responsible for "developing and implementing programs to address community animal -related problems, and supervises and coordinates staff to ensure professional, effective and efficient operations within fiscal responsibility." It should be noted that the Director of Operations also serves as the Keaau Shelter Manager, as reflected on the agency's organizational chart. Note: The job description presented forthe Director of Shelter Operations position was obtained from the Hawaiian Humane Society Administration 2-2 and was not modified specifically for HIHS use. The Shelter Managers are responsible for "managing the day-to-day operations of the humane society shelter." It is unknown when this job description was last reviewed. It is common for some employees to perform in multiple work areas all in the same day. Workers also fill-in for each other when vacancies/absences occur. Overtime is assigned, when necessary. Work Schedules Schedules vary from employee to employee, with most working a basic 8 -hour shift (current shift schedules may be found at the end of this chapter). A 30 -minute lunch break is offered to each worker. On-call personnel are compensated for stand-by assignments and/or any response to an after-hours emergency. Stand-by status is rotated among field officers at all 3 locations. The Study Team believes that work schedules should be left up to supervisors to ensure that staffing levels are maintained at an acceptable level. Attrition Detailed attrition data, as provided by HIHS, is presented at the end of this chapter. Recruitment and Selection The recruitment and selection of capable personnel into Animal Control/Care organizations is critical to the quality of services provided to the community. Although state-of-the-art recruiting and selecting practices will not, in and of themselves, guarantee continued high performance of personnel over the course of their careers, these personnel functions will certainly contribute in a very significant way to the achievement of this objective. Even though it is important for agencies to perform these functions effectively when hiring all employees, it is particularly important for Animal Control/Care personnel because of the especially critical and sometimes dangerous tasks that they perform. Essential to the high quality hiring of Animal Control/Care personnel is the consideration of validity and fairness. With regard to validity, it is important, from both professional and legal perspectives, that the standards and procedures employed are job-related and predictive of future job performance. In simple terms, you want in the selection standards and procedures (e.g., "tests") what is in the job itself. The second key consideration, fairness, pertains to issues of race/ethnicity and sex. Hiring standards and procedures need to be "color blind," that is they need to be as free from irrelevant bias and be as non- discriminatory as possible. Administration 2-3 Everyone, in other words, should have a fair crack at the job and be considered equally with all other applicants. These two key characteristics of validity and fairness then, must be imbedded into standards and procedures employed to recruit and select Animal Control/Care employees. Within HIHS, vacancies in all positions are posted as based on assigned responsibilities. Job requirements are assigned to each area. Vacancies are posted in-house and advertised outside the organization (newspaper, Internet classifieds, "First to Work" program) to attract qualified applicants. Keaau Facility Qualifications for the Executive Director include a university or college degree; the ability to express ideas clearly, concisely and persuasively both in writing and public speaking; must agree with, and be committed to, the HIHS's mission, positive statements, goals and programs; have a valid driver's license and a good driving record; and be able to travel to the mainland and neighbor islands to attend meetings and conferences. The Director of Operations position requires a college degree; five years of management experience; two years of experience working in shelter operations or field services is preferred; a valid driver's license with a good driving record; a knowledge of telephone, radio and computer operation; proven supervisory and management skills; a demonstrated ability to communicate well orally and in writing; familiarity with the physical plant maintenance and upkeep; an understanding of and ability to utilize fiscal management procedures, budgets, negotiation skills, and other administrative practices; a demonstrated ability to work in a team environment and to provide team leadership; and must agree with and be committed to the Society's goals, objectives and programs. Note: The job description presented for the Director of Shelter Operations position was obtained by the agency from the Hawaiian Humane Society and was not modified specifically forHlHS use. Qualifications for the Administrative Assistant include a college or university degree (preferred); previous clerical and organizational experience or experience working in animal welfare; excellent communication skills; an ability to write clearly and concisely; posses a working knowledge of computers; posses a genuine concern forthe welfare of animals that is consistent with HIHS's mission; and be familiar with the general practices and procedures of the shelters. The Accountant/Bookkeeper position requires two years of accounting or bookkeeping experience (preferred); a college or university degree (preferred); experience working with a animal welfare or nonprofit organization; posses excellent accounting and bookkeeping Administration 2-4 skills; posses the ability to write clearly and concisely; posses a working knowledge of accounting/bookkeeping principles; posses a genuine concern for the welfare of animals that is consistent with HIHS's mission; and be familiar with the general practices and procedures of the shelters. Qualifications for the Community Programs Coordinator positions include two years of supervisory experience (preferred); a college or university degree (preferred); previous experience in the supervision of personnel; previous experience working in the animal welfare field; posses excellent communication skills; posses the ability to write clearly and concisely; posses a working knowledge of computers; posses a genuine concern for the welfare of animals that is consistent with HIHS's mission; and be familiar with the general practices and procedures of the shelters. The Staff Veterinarian position requires two years of clinical practice experience post - graduation (preferred); a D.V.M. and current Hawaii veterinaryand DEA licenses; the ability to speak clearly in front of an audience; the ability to write clearly; the ability to plan, organize, train and supervise staff and volunteers; and agree with, and be committed to, the Society's goals, objectives and programs. Qualifications for the Shelter Manager positions include two years of supervisory experience; the graduation from a high school (minimum) or college degree (preferred); posses animal care and handling knowledge; posses excellent communication skills; posses the ability to write clearly and articulate ideas easily; posses a working knowledge of computers; posses a genuine concern for the welfare of animals that is consistent with HIHS's mission; and posses the ability to prioritize work to meet deadlines and maintain goals and objectives. The Humane Officer positions require a high school diploma or college degree (desirable); posses animal handling or veterinary technician experience, in addition to customer service experience, offer a professional demeanor; be a self -motivator; posses good oral and written communication skills; posses the ability to organize and prioritize work with a good problem solving ability, with the ability to exercise good judgement; posses a valid driver's license and clean driving abstract; and four years of paid work experience. The Study Team was not presented a job description for the Animal Health Technician or the Kennel/Shelter Assistant positions. Previous work history ("telephone reference check") and education is verified, and criminal background checks are performed on Humane Officer applicants and any other position involved in the euthanasia process. Depending on the position, potential employees are also subject to a traffic abstract review. Physical examinations and/or drug testing are not required (however, during the course of the worker's employment, he/she may be subjected to such an exam or testing). There are no special incentives to hire minorities or females. All applicants have the opportunity to review job descriptions prior to being interviewed. Administration 2-5 Current HIHS employees may be given preferential consideration for vacancies in other work areas or promotions, depending on skills and qualifications. Interview Process The HIHS utilizes an interview/selection committee. The Executive Director and 2 other HIHS employees conduct alt interviews (the 2 HIHS panelists are chosen based upon the candidate's specific employment location). It is unknown if these employees have been provided any training Waimea f=acility in effective interviewing techniques which complies with the EEOC. Efforts are generally made to place the potential ease during the interviewing process. candidate at The Study Team was presented with 2 written pre-employment questionnaires (for the Humane Officer and Community Programs Coordinator positions) which are used to determine skills. Hiring standards and procedures are non-discriminatory and free from irrelevant bias. Supervision The HIHS has an Executive Director that is responsible for the program. This employee's essential job functions are described as follows: L) Oversee the operation of all HIHS shelters and administer the county contract for animal control. L) Develop and implement programs and services in accordance with established policies, laws, regulations and guidelines. L) Develop and manage budget for County and HIHS funds. Evaluate budget process and make appropriate recommendations to the Board. J Works with Board on all aspects of fund development, including grant -writing, fundraising events, direct mail solicitation, and soliciting corporate and individual sponsors. L) Hire, train and effectively utilize staff to provide services and programs. U Assist the Board of Directors in developing sound policies and programs to accomplish the goals set forth in the HIHS mission statement. Implement policies established by the Board. D Report regularly to the Board of Directors and consult with the Board and appropriate committees for such advice and counsel as may be needed. U Assist the Board of Directors in establishing and utilizing appropriate committees. Administration 2-6 IJ Develop and maintain a current knowledge of all HIHS programs and finances. U Terminate ineffective programs, services, and staff as applicable, in accordance with the Board of Directors and applicable policies, laws, regulations and guidelines. J Develop and present testimony before the County Council, State Legislature, and other government agencies on behalf of HIHS and to support humane legislation. El Represent HIHS and articulate its positions to the media, community groups, and other appropriate audiences. LI Develop and maintain a current knowledge of all relevant federal, state and county laws and ordinances pertaining to animal control and welfare. The Director of Operations has been identified as the "interim director" in the absence of the Executive Director. The "chain of command" was described as follows: U Kailua-Kona - Executive Director > Shelter Manager L) Keaau - Director of Operations > Senior Humane Officer L) Waimea - Kona Shelter Manager (offsite) > Senior Humane Officer Once manpower levels increase, the agency will need to identify certain employees within the kennel and field areas as "leads" or supervisors to further strengthen the chain of command. At no time should any shift operate without a supervisor or lead on duty. Of course, any employee promoted to a lead or supervisor position should possess the level of skills or training required in their positions. Administrative Support An Administrative Assistant also offers additional support to the Executive Director. This worker's essential duties and functions are described as follows: U Coordinate correspondence for the office. 0 Design and edit the quarterly newsletter. 13 Update and maintain promotional material for the shelters. U Work with the Executive Director on developing grant writing projects. U Establish a brochure system to provide material on adoptions and pet care. L11 Coordinate advertising for the shelters. U Maintain petty cash container. Ci Oversee projects to centralize purchases for the three shelters. U Assist with public relations (press releases, etc.). Staff Meetings/Communications The Executive Director and the area supervisors interact with employees on a daily basis. Weekly meetings are offered at the Kailua-Kona and Waimea facilities, bi-weekly meetings are held at the Keaau shelter. The entire HIHS staff meets as a group at least once annually or "whenever needed." Administration 2-7 Most employees feel comfortable in introducing new ideas or problems to management (however, a few workers felt that some of their ideas were not introduced due to financial limitations). The Executive Director has an "open door" policy, and employees are allowed to deviate from the chain of command under certain circumstances (workers are encouraged to discuss any issue with their immediate supervisor first). The practice of holding periodic meetings has contributed to an increased level of communication between work areas and facilities. Currently, only a limited number of employees at the Kailua-Kona and Waimea shelters have access to the Internet and/or an e-mail system. The Shelter Managers, Staff Veterinarian and Executive Director are provided a pager. Only the Executive Director is offered a cell phone. Mission of the Department The HIHS offers the following mission statement: "The Hawaii Island Humane Society (HIHS) is a private, 501 (c) 3 non-profit organization, whose mission is to prevent cruelty to animals, promote respect for their intrinsic value, eliminate pet overpopulation and enhance the bond between humans and animals." Within HIHS, the following program goals and objectives for Fiscal Year 2001-2002 have been identified: Goals L) Advocating increased priority and funding of the Animal Control contract. ❑ Improving response times by Humane Officers and overall resolution of Animal Control complaints and cases in the community. Ci Work with the Corporation Counsel to improve current Animal Control -related laws. ❑ Reduce euthanasia rates. ❑ Offer highly -trained, qualified, badged Humane Officers. • Statewide coordination of Animal Control programs. ❑ Meet national standards for humane societies and Animal Control programs. • Develop a cat house and surgery room for the Kailua-Kona shelter. • Computerize the tracking of animal complaints, vicious dog designations, loose animal redemptions and other records. Objectives [) Respond within 2 hours to 90% of all vicious dog calls. J Respond within 2 hours to 90% of loose animal complaints which pose a threat to human safety. U Respond within 2 hours to 90% of injured animal -related calls for service. Administration 2-8 j Respond within 3 hours to 90% of calls for HIHS assistance requested by the Police Department. J Respond within 24 hours to 90% of animal cruelty and neglect complaints. Resolve these complaints within 14 working days. U Respond within 48 hours to 90% license, at -large and non -cruelty or neglect calls for service. Resolve these complaints within 5 working days. j Conduct 24 sweeps of problem communities annually. The Study Team was unable to determine if any employee currently on the staff has received training in plan development. A summary of performance indicators for HIHS is listed at the end of each respective chapter. Policies & Procedures The Study Team was presented with the following material: ❑ Standard Operating Procedures of the HIHS j HIHS Employee Manual j Euthanasia Guide for Animal Shelters L) HIHS Volunteer Handbook L) Front Office, Records and Fiscal Procedures The HIHS Employee Manual is offered to "acquaint" employees with HIHS personnel policies and benefits. This manual offers specific policy revision dates and is updated whenever necessary. The current Standard Operating Procedures of the HIHS Manual "defines certain behavior and practices by which its members properly perform their duties and responsibilities." This manual was described as "outdated" and has limited use by workers as a point of reference. The Study Team felt that the current Procedures Manual covered most areas of the operation, however several copies/samples of forms are not included, along with an explanation in their use. The current Procedure Manual is separated by work area, and is organized in a particular fashion. All these polices are dated, however the Study Team found it difficult to determine if some of this information was still valid (the Study Team was advised that the bulk of the manual's contents was written in 1989-90). In addition, memorandums included in the Procedure Manual are used to describe policy changes and/or new procedures. This particular format is not typically found in Animal Control/Care work. The HIHS is presently developing a new policy and procedure manual which will be reviewed internally by all HIHS staff members and released this year. The Executive Director stated that the HIHS staff is asked to participate in establishing policies that effect their work area. Most of the employees interviewed had access to a policy manual or had a copy in their possession. It is unknown if employees are required Administration 2-9 to "sign -off' verifying that they had received such materials (workers are required to sign for the HIHS Employee Manual). Limited information regarding employee safety issues is offered in the current HIHS S.O.P. Facilities HIHS administrative personnel are located at the Kailua-Kona facility. At current staffing levels, there is an inadequate amount of space available for workers. The Executive Director is offered a private office, while all other administrative workers must share work areas. Dispatch and telephone services at all 3 facilities are located within public reception areas, which affords little privacy. The Study Team observed shelter visitors and other employees frequently interrupting the dispatcher, Executive € hector,'s Office resulting in excessive background noise and loss of concentration. It is felt that the dispatch area needs to be moved to a more restricted area, thus promoting a quieter working environment (this issue is addressed further in Chapter 3, "Communications'). Records Management All records are stored and maintained on hardcopy and/or computer system at each sheltering facility. There are several computers and other office -related equipment (such as copiers, a fax machine) available at the 3 facilities. Intake/release forms, investigation reports, dog/cat redemption forms, trap loan agreements, surrender forms and complaint records are just some of the information logged on paper. The majority of records are held for 5 years, and then destroyed (financial, personnel and vicious dog records are held indefinitely). The Administrative Assistant or the individual Shelter Manager (depending on the area in which the information originates) is in charge of records management. An HIHS volunteer is also charged with maintaining the licensing and spay/neuter database. Active personnel files are kept within the Executive Director's office, inaccessible by the public and non -authorized employees (inactive files are kept in the Administrative Assistant's office). Reports regarding activities are prepared monthly and at the end of each fiscal year (these summaries are offered to the HIHS Board and Hawaii County officials). Policy 17.03, located within the S.O.P., details the agency's responsibilities involved with the distribution of records. It is unknown if any audits or integrity checks are performed on records to insure the accuracy of information. The Accountant/Bookkeeper performs an internal audit on financial records at the end of each month. Outside audits are conducted once approved by the Administration 2-10 HIHS Fiscal Committee (which typically occurs every 2 years). The HIHS Budget The agency's fiscal year begins on July 1s' of each year and ends on June 301h the following year. A summary of budget history appears at the end of this chapter. The following chart details the 2000-2001 budget sources and allocations: Indicator Contract Funding HIHS Subsidy Contract Personnel 478,950 69,304 Contract Operations 134,050 11,569 Contract Equipment 2,000 0 Contract Spay/Neuter CAP 35,000 10,000 Total Contract 650,000 80,873 Source. HIHS Deficits for the agency are equalized at the end of the fiscal year by supplementing the budget with "operating transfers" from HIHS operating accounts. Revenue to fund the contracted portion of HIHS operations is through Hawaii County taxpayers. The Executive Director and the Accountant/Bookkeeper prepare annual budgets. The budget for contracted services is submitted to the Director of Finance and County Council for review and approval. The budget for HIHS services is reviewed and approved by the HIHS Board of Directors. During the 1999-2000 fiscal year, the Hawaii County appropriation for Animal Control services was $627,250. An additional $55,422.17 was contributed by HIHS to subsidize these services. While the Study Team commends HIHS for offering separate budgets for contract and HIHS services, it is recommended that the agency improve this process by actually describing contract versus non -contractual services within the budget itself. Such an improvement would possibly eliminate much of the confusion regarding the public's service expectations. In previous NACA evaluations, budgeted amounts are actually identified with a specific service (i.e.: field, shelter and administration). In addition, the Study Team would recommend that the budget separately reflect the cost of operating each of the 3 shelters. Such information would provide citizens a more accurate assessment regarding the distribution of their tax dollars. Revenue is generated primarily through contractual fees, the Spay/Neuter Program, contributions, merchandise sales, grants, and adoption/service-related fees. HIHS forwards any impound, license and boarding fees to Hawaii County, which is used to offset program costs. Any HIHS-related fee is retained by the agency. HIHS is self-supporting and has an extensive donation base (cash and in-kind donations). Although HIHS is not a part of Administration 2-11 County government, the agency does compete with other County departments for tax dollars. Generally speaking, the agency does a good job of keeping enough statistical data to justify budget increases (however, the method of gathering this data could be improved as recommended in other areas of this report). Copies of monthly financial statements are generated by the Accountant/Bookkeeper. This employee's essential duties and functions include: Kaiiva-Kona Entrance Sign LI Coordinate development of annual budgets. LI Process payroll, payment of expenses, tax forms, and transfer of funds. L) Reconcile bank statements and balance bank account. J Prepare budget reports for the Executive Director. CI Plan and prepare for audits. U Other duties as assigned. No budget freeze or layoffs has occurred within the past five years, however the agency has left the 2 vacant Community Program Coordinator positions unfilled in the current budget year. Receipts and expenditures are tracked internally by the Accountant/Bookkeeper. The shelter managers or a designated employee prepare weekly cash transaction sheets. Shelter monies are deposited weekly (at the Waimea facility, deposits are made 2-4 times per month). There appears to be proper safeguards in place to prevent employee theft (cash register receipts, receipt books, drug logs). However, monies were recently stolen from an HIHS trap deposit box, which is used to track deposit money for live trap loans. The per capita portion of HIHS for the County of Hawaii, for the 2001-2002 Fiscal Year was stated to be $5.30, the ICMA national average is $3 to $5. The HIHS/Hawaii County Contract The Study Team had an opportunity to review the First Amendment to the Agreement, dated July 5, 2001, which defines specific terms and services for HIHS. Section 1 of the amendment identifies the required "general duties" of the contractor as follows: Shelter and Disposition Responsibility. The Contractor shall operate and properly maintain 3 animal shelter facilities, to include the County -owned Kona pound. The term "properly maintain" shall be according to standards established by the National Animal Control Association, the Administration 2-12 Humane Society of the United States, or any other nationally recognized animal welfare and control organization acceptable to the County. The shelter facilities will be open to the public as follows (excluding County holidays): Keaau Monday through Saturday 9:00 am to 5:30 pm Kona Tuesday, Thursday, Friday, Saturday 8:00 am to 3:30 pm Wednesday 8.00 am to 6:00 pm Waimea Tuesday through Saturday 12:00 pm to 3:30 pm Days and hours of operation may be changed upon mutual agreement in writing between the contractor and the Director of Finance, County of Hawaii, hereinafter referred to as "Director," provided that the minimum number of hours is not decreased, service to the public is not diminished, and notice is published in the local newspaper. The facilities shall: ❑ Impound, maintain and dispose of unlicensed, lost, stray, homeless, diseased or seriously injured dogs, and euthanize or dispose of seized dogs not redeemed. 0 Shelter and dispose of lost, stray, unclaimed, diseased, or seriously injured cats and other small domesticated animals and livestock. U Feed and shelter the animals in its care pursuant to Chapter 143, Hawaii Revised Statutes and Chapter 4 of the Hawaii County Code. Measures. It is estimated that the Contractor will: U Receive, assess and/or process: 12,800 stray/feral animals. 3,500 owner surrender animals. 750 redemptions. 15 animals returned to the Contractor for health reasons. 50 animals sent to the Hawaiian Humane Society on Oahu. ❑ Euthanize 14,000 animals. If the Contractor, at its sole discretion, opts to establish and carry out an adoption program, at least for the period July 1, 2001, to June 30, 2002, such a program shall not exclude potential adopters solely on the basis that the potential adopter is a bird or pig hunter. The Contractor's failure to abide by this may constitute a breach of contract, and the County may proceed to cancel the contract, and/or may be entitled to any other remedy entitled by law. Enforcement Responsibility. The Contractor shall enforce the following laws relating to animals: U Cruelty to Animals, Section 711-1109, HRS. Administration 2-13 ❑ Cruelty to Animals, Fighting Dogs, Section 711-1109.3. ❑ Dog Licenses and Regulations, Chapter 143, HRS. ❑ Chapter 4, HCC, Animal Control, except for Sections 4-24 & 4-25. Objectives and/or Measures. The Contractor shall: ❑i Have on staff a minimum of: 5 Animal Control Officers in Keaau, serving Hilo, Hamakua, Puna, Kau. 3 Animal Control Officers in Kona, also serving South Kona, Ocean View. 2 Animal Control Officers in Waimea, also serving Honokaa, Waikoloa, Kohala. 65 volunteers, providing 13,800 volunteer hours. It is estimated that the Contractor will: ❑ Process 2,880 Animal Control cases. ❑ Issue 1,500 complaint and compliance notices. ❑ Issue 130 citations. ❑ Issue 20 citations to repeat offenders. ❑ Participate in 15 vicious dog appeal hearings. Patrol Responsibility. The Contractor shall implement a patrol and pickup schedule which may be adjusted periodically for proper performance of the organization's obligation under this agreement, considering the needs of the public, availability of manpower and equipment, and the requirements of government agencies. Objectives and/or Measures. The Contractor shall: ❑ Conduct 300 patrols covering 138,000 miles. ❑ Loan 500 traps to the public. ❑ Conduct 24 "sweeps" of problem communities. Collection and Disposition Responsibility. The Contractor shall be primarily responsible for the recovery and disposal of dead dogs and other small domesticated animals found on public ways by reasonable means. The term "reasonable means" include the subcontracting of this service to a private sanitation company or other qualified person, provided that the terms and conditions of such subcontract, means or service shall be approved by the Director. The term "public ways" shall refer to such ways which are open to the public within all districts of the County of Hawaii. Measure. It is estimated that the Contractor, together with the County Department of Public Works (Roads Division) and Police Department, will collect and dispose of 400 dead animals. Administration 2-94 Dispatch Service Responsibility. The Contractor shall operate a 24-hour dispatch service to receive requests for services and complaints about animals from the public. Service response time shall be mutually agreed upon between the Contractor and the Department based upon the estimated danger to the public and animal, and the availability of staff. The following agreement has been reached: [J, Reports of injured animals - 90% of responses shall be initiated within 2 hours, when the animal is in the immediate response area and is not confined. U Reports of vicious dog attacks on a person where the dog is not contained and is a potential threat - 90% of responses shall be initiated within 2 hours. L1 Reports of a loose animal posing a public safety hazard - 90% of responses shall be initiated within 2 hours. ❑ Reports of cruelty orneglect to an animal where the animal is in immediate danger - 90% of response shall be initiated within 2 hours and resolved in 14 working days. L) Police request for Animal Control assistance - 90% of responses shall be initiated within 3 hours. 0 Requests to pickup contained, stray dogs - 90% of response shall be initiated within 24 hours, except in situations where arrangements have been made otherwise. L) Reports of cruelty or neglect to an animal where the animal is not in immediate danger - 90% of responses shall be initiated within 24 hours, and resolved in 14 working days. ❑ Reports of a unlicensed, loose dog, and non-cruelty/neglect cases - 90% of responses shall be initiated within 48 hours and resolved in 5 working days. • All other requests for services - response shall be initiated within the limits allowed by staff availability. Measures. It is estimated that the Contractor will: ❑ Respond to 8,900 Animal Control related calls. 1J Respond to 270 after -hour emergency calls. Licensing Responsibility. The Contractor shall sell dog licenses and assist in the maintenance of dog license files for which the Contractor shall have access to the Department's computerized dog license files. It shall also issue cat identification tags. Measures. It is estimated that the Contractor will: ❑ Issue 4,000 dog licenses. ❑ Collect $15,000 in dog license fees. Spay/Neuter Program Responsibility. The Contractor shall administer a spay/neuter program for dogs and cats. Administration 2-15 Objectives andlor Measure. The Contractor shall issue 1,520 spay/neuter coupons. Reporting Responsibility. The Contractor shall render a quarterly report of its revenues and expenses, and progress in meeting its objectives and measures to the Director to be submitted within 30 days after the close of each quarter. A copy of the quarterly report shall also be submitted to the Mayor, County Council and Chief of Police. (End of Section 1) In addition, Section 2 of the amendment identifies the required duties of the County as follows: Requires the County to offer training and badging humane officers twice a year, upon request of the Contractor. (End of Section 2) The Study Team felt that the First Amendment to the Agreement was a vast improvement over the original Agreement. However: • The suggested times of response "initiation" regarding injured animals, vicious dog attacks, loose animals posing a public safety hazard, and cruelty or neglect to an animal that is in immediate danger, were unacceptable. Any response to the aforementioned service calls, except those which occur after-hours, should be immediate. The agency has been charged with protecting public health and safety, thus an officer should be dispatched (and in -route) to such complaints as soon as possible. • Any Police Department obligations should also be reflected within the First Amendment to the Agreement. Such information may relieve the current confusion among citizens (and government officials alike) as to the specific responsibilities regarding Animal Control service. In addition, the Police Department should be the first responder for any priority call (injured animals, vicious dog attacks, loose animals posing a public safety hazard, and cruelty or neglect to an animal that is in immediate danger) after normal FINS hours of operation. • The term "pound" is obsolete and no longer used. L) The Study Team finds it unusual that the County now requires the Contractor to "render a quarterly report of its progress in meeting its objectives and measures" considering that HIHS currently has no mechanism in place to accurately track some of those measures (such as response times). 0 It remains difficult for the Study Team to distinguish between Animal Control and Humane Society services. For example, Humane Officers are typically utilized daily for office and shelter duties, however these positions are funded entirely with contract funds. At which point does contract service end and HIHS funding begin? L) The First Amendment to the Agreement requires that the Contractor maintain a minimum compliment of Humane Officers, however the Agreement is not specific as to how this manpower should be assigned. Why doesn't the Agreement require a minimum number of field staffing hours? There appears to be much confusion Administration 2-16 among County officials, the Police Department, the Finance Department, HIHS and citizens as to the "separation" between Animal Control and Humane Society functions. Based on the current contract requirements, there is no separation. U The current Agreement identifies specific service responsibilities, howeverthe Study Team was confused as to the funding aspects of the contract. An example of this confusion is reflected within the First Amendment to the Agreement. The days and hours of shelter operations are indicated, however the minimum staffing requirements (kennel and office staff) to operate the 3 shelters is not recommended. The Study Team was unsure how contract funding is determined without any specific knowledge of staffing requirements. Is the County just considering the lowest bid without consideration of the Contractor's quality and level of service? L) Both agencies should consider adding performance incentives to the current contract, in addition to requiring a minimum base of pay for HIHS contract employees. Several complaints expressed by HIHS employees dealt with theirlevel of pay. The current wage base, particularly at the Kona facility, contributes to the agency's tumoverrate, and also increases the taxpayer's frustrations in dealing with inexperienced and non -badged HIHS workers or insufficient staffing levels (the frequent tumover also raises the level of stress for current HIHS employees). As stated previously, the FirstAmendment to the Agreement is a distinct improvement over the original contract. However, the Study Team would suggest that the County continue to clarify and enhance the Agreement before future bids are solicited. The Study Team will offer the Finance Department sample copies of Animal Control service contracts, utilized by other government agencies, at their request. Material Procurement The Administrative Assistant is responsible for preparing requisitions, communicating with vendors, obtaining quotes, determining commodity pricing and securing commodities. Requests must be directed through the area supervisor, then ultimately on to the Executive Director for final approval. Any purchase over $1,000 requires the signature of the HIHS Treasurer. The agency maintains an inventory on all fixed assets. Employees are held accountable for materials issued or used during their shift of duty. Equipment is replaced if loss or repair is justified. Schedules for the repair and maintenance of vehicles and facilities are currently in use. Computer Support A networked computer system is presently being developed for HIHS. It is unknown if this system will allow employees of the 3 facilities to share data among each other (a common complaint among HIHS workers was the inability of the 3 shelters to share and access information regarding violations, warning notices, etc.). Several stand-alone systems are Administration 2-17 currently available among the 3 facilities. Only the Kailua-Kona and Waimea facilities may access (via a dial-up connection) the Internet and/or an e-mail system. Numerous versions and types of software exist (Microsoft Access, Excel, Word, the MAS90 accounting software, etc.). The agency currently does not utilize a commercial software package, agency -wide, to track animal receiving and redemption, adoptions, etc. Instead, impounded animals . must be logged on paper (intake forms) upon entering the facility and once adopted, Keaau Entrance Sign redeemed or euthanised. Currently, the Kailua-Kona and Waimea shelters enter information into a database on animals adopted or redeemed only at the end of each month (using the intake forms and invoices for that period). A report is then generated, summarizing the totals for that month. Dog licensing information is also logged on computer. Emergency/complaint report logs and complaint records are other examples of information currently logged on computer. (Note: It appears that the Kailua-Kona and Waimea facilities offer an increased level of automation than the Keaau operation.) Several employees interviewed felt comfortable with the current system, however most workers have not been offered formal training in the use of the computers and software (employees will be trained in the use of the new networked system). Backups of financial data is performed every 2 weeks, and the agency has access to computer support should a crisis arise. Only a limited number of employees have access to the Internet and/or an e-mail system. Human Resources There are no labor unions available to represent HIHS employees. Grievances within the agency are a formal procedure which is initiated by a discussion with the worker's immediate supervisor. The grievance then travels through the chain of command, all the way to the HIHS of Board of Directors, if necessary. The tolerance level for misconduct was stated to be "high, however no misconduct is tolerated." For the most part, disciplinary action is taken swiftly and the action is fitting with the infraction. The Executive Director has an "open door" policy, and employees are allowed to deviate from the chain of command under certain circumstances (workers are encouraged to discuss any issue with their immediate supervisor first). Administration 2-18 Performance Evaluations It is essential that personnel be evaluated periodically during the course of their careers. Such a process allows the employer to attend, individually, to employee performance and to respond appropriately to what has been established as desirable and/or undesirable conduct. Similarly, the process allows employees to periodically receive information about their performance, and how it is being perceived by management. The open exchange of this information between employer and employee is important for a variety of human resource management reasons pertaining to the needs of both parties. Management is obliged to fulfill its varied responsibilities to the public, and employees have a right to expect from management the resources necessary to discharge these responsibilities. To make the performance evaluation process really work (i.e., where it impacts future personnel decisions), it is essential that a substantial amount of energy be devoted to it by management and first-line supervision. This is often not the case, and it is therefore common for the periodic performance evaluation process to take on an empty, ritualistic character which serves little purpose. Effective performance evaluation then requires organizational commitment to the process, use of the results for future personnel actions such as promotion and assignment, and the daily observation of performance and written reporting of critical/important incidents as they arise. The procedures therefore must be valued, perceived as fair and relevant, and ongoing/continuous. Within HIHS, evaluations are conducted in a structured format. These reviews offer the employee and the supervisor an opportunity to discuss strong points of performance, areas for improvement, and to set goals for the future. All employees are evaluated by their immediate supervisor. Typically, in-house training has been offered to supervisors regarding the evaluation process (most have not had formal training in this area). Probationary employees are evaluated every 90 and 180 days (6 -month probationary period). Non -probationary workers are evaluated annually. Evaluations are also used in the promotional process and to determine future assignments. Daily observations of performance and written or verbal warnings also support the evaluation process. Promotions Promotional opportunities and procedures both have a significant impact on the morale of personnel, the nature of leadership in the organization and the quality of services delivered to the public. For these reasons, it is very important for agencies to devote considerable attention and resources to the development and implementation of job-related, fair and state-of-the-art promotional practices. - Within HIHS, promotional opportunities are advertised in-house and/or outside the organization. The HIHS interview/selection committee reviews credentials and interviews Administration 2-19 perspective candidates. Qualifications and skills have been the primary factors in granting promotions. Pre-employment questionnaires are offered only for the Humane Officer and Community Programs Coordinator positions. Criminal background checks are performed on Humane Officer applicants and any other position involved in the euthanasia process. Depending on the position, potential employees are also subject to a traffic abstract review. Physical examinations and/or drug testing are not required. Employee Assistance Program The HIHS offers an Employee Assistance Program and special consideration is given to the HIHS staff to lessen the excessive stress these employees are subjected to on a daily basis. Job Descriptions The Study Team reviewed job descriptions for all positions within HIHS. This material details a worker's responsibilities to their employer and their assignments. The following list of job descriptions was presented for review: • Administrative Assistant (09/29/00) • Accountant/Bookkeeper (10/23/00) • Director of Shelter Operations (not validated by HIHS) • Community Programs Coordinator (09/28/00) • Executive Director (no date) • Humane Officer/Investigator (11/98) L) Shelter Manager (no date) Q Staff Veterinarian (09/99) The job description presented for the Director of Shelter Operations position was obtained by the agency from the Hawaiian Humane Society and was not modified specifically for HIHS use. In addition, the Study Team was not presented a job description for the Animal Health Technician and the Kennel/Shelter Assistant positions. The Study Team was advised that the agency conducts a review of all job descriptions at least once per year. It is imperative that all job descriptions are examined annually and that the material encompasses all work responsibilities in the organization. Training Training, to be effective, must be reflective of agency values, goals, programs, policies and procedures. In this regard, training, the entities responsible for training, and personnel associated with the training function must be part of the management process. Too often, the training function is not in the mainstream of departmental affairs, and therefore Administration 2-20 operates within a relatively narrow frame of reference. For example, if the training officer is not reasonably familiar with various problems within the organization as a whole, the thrust and content of training will be flawed, and its impact reduced. Related to this consideration is the notion that you can't effectively train a target group, (e.g., field officers) without, at the very least, familiarizing the next higher levels in the chain of command of what you are doing and why (i.e., supervisors). The attitudes of these higher-ranking personnel Waimea Entrance Sign will have significant bearing on the extent to which the training is allowed to become part of the behavioral repertoire of the target group. This concept not only applies to recruit training, but very clearly to in-service and specialized training as well. Training needs, including those mandated (if any), must be carefully identified, and there are a variety of resources for doing this. Certainly opinions derived from people both within and outside the agency are relevant. Surveys can serve as effective means for identifying these training needs. Outside the agency, appointed and elected officials, community leaders and other citizens can provide very useful information. Relevant data can also provide important perspectives. For example, analyses of complaints, civil actions, and causes of accidents and injuries can provide very useful insights into training needs. Of course, at the other end of the training need's spectrum is the issue of effectiveness evaluation, and it is critical that any training conducted be assessed to determine whether it has satisfied its intended objectives. Training is too often viewed as a luxury, and is thus often the target of budget cutting initiatives. It is also common for supervisory and mid -management personnel to complain about the scheduling of in-service training because it pulls people out of the field. Management must be aware of the potential detracting influences and must be prepared to persuasively argue for monies and flexibility in scheduling. With the exception of very small departments, it can be argued that an agency would get more from its department by spending enough money on annual in-service training than it would by hiring one more officer. Regarding scheduling, making in-service training fit into the regular work day should be assured first and implemented, if feasible. If found not to be possible, overtime monies should be budgeted specifically for annual in-service training. Administration 2-21 It is common for administrators to look to training as the solution to many, if not most, management problems. That management problem may be an individual who is rapidly becoming an administrative headache or an organizational problem of some sort (e.g., "lack of communication"). Management cannot solve all of its problems with training; Training is no panacea whether it is more training, better training or different training. Training can often be part of the solution; On rare occasions it can even be the whole solution, but typically individual and organizational problems must be approached through the use of a variety of coordinated resources including, but not limited to, training. Further, the departmental entity, (e.g., Training Coordinator, Training Division) should not be the sole source of all training activities nor the only entity held responsible for training. Training is everyone's responsibility, and although the designated training entity should be an extremely valuable agency resource and coordination mechanism, the function must be performed by a variety of different people on a daily and continuing basis. Within HIHS, training needs are identified through the pattern of complaints, disciplinary action, performance evaluations, and areas of training interest expressed by the staff. Supervisors will also observe employees engaged in activity to help gauge performance. The Study Team was unable to determine who has been identified to track all employee training records (documented training is kept in each individual personnel file). Only HIHS Humane Officer training records were presented for review; based on this limited sampling, the Study Team was unable to offer any analysis regarding the agency's training history or standards. Note: Typically, training records, encompassing all staff members, are maintained on a database, which can be easily accessed when needed. Training is addressed in the budget process; for the 2000-2001 Fiscal Year, training funds were stated to be $3,100.00, which includes travel -related and meeting expenses. Based on this amount, it appears that this area is inadequately funded for the prevailing number of employees (only $141.00 would be allocated to each staff member). Note: Based on unaudited financial information for the fiscal year ending June 30, 2001, HIHS actually spent $11,144 for staff training and meeting expenses. Specific certifications and licenses are required for certain HIHS positions (anyone involved in the euthanasia process, the Staff Veterinarian, and Humane Officers). New employees are offered an orientation before beginning work. After hiring, personnel are trained "on the job," usually being placed with designated training staff (senior employees) and/or rotated among several workers. The length of time varies among employees, depending on previous experience and work area. Workers are designated as "in training" for their entire 6 -month probationary period before officially being discharged from the training program. The HIHS Employee Manual describes the probationary period as "an orientation period and is designed to introduce new employees to the HIHS, its policies, procedures and staff." Administration 2-22 Area supervisors determine when an employee is to be released from the training program. Although the agency offers an "Individual Training and Education Record detailing HIHS training requirements, the Study Team was unsure if all the listed topics are covered during a recruit's 6 -month probationary period. "Refresher" courses are sometimes offered to employees (usually in-house via staff meetings or training sessions presented by the Staff Veterinarian), and some support of national Animal Control and humane associations exists. Monies for professional memberships are included in the current budget. employees. Keaau Modular Unit Training materials are also available to For most workers at HIHS, it is sometimes considered difficult to attend classes due to the lack of coverage in work areas while employees are absent. The County of Hawaii requires the "badging" and recertification of Humane Officers, and HIHS requires in-house certification of any worker involved in the euthanasia process (explained further in Chapter 4, "Shelter Operations'). Employees are sometimes given the opportunity to attend outside seminars and conferences when training monies are made available (none of the HIHS Officers are known to have achieved certification through the National Animal Control Association's Training Academy). Because of the expense involved with traveling to the mainland United States, most training opportunities offered to HIHS employees is primarily restricted to the State of Hawaii. In fact, several of the HIHS Humane Officers have attended the Hawaiian Humane Society's Humane Investigator Training for Animal Control Professionals, Level 1-3. HIHS supervisors are also offered management skills training when monies, and opportunities, are available. Only 1 HIHS employee interviewed has received special training on how to educate new employees (such as "Train the Trainer"). It is unknown if those staff members involved in training new workers are compensated for this added responsibility. When employees achieve a "seasoned" level, it is assumed that they already possess the abilities to train other people. Rule 19 and the BadginProcess Humane Officer training requirements are reflected in "Rule 19" which states that "the Director (of Finance) shall require that an applicant for humane officer successfully complete a training course conducted by the Chief of Police, the Prosecuting Attorney, and Administration 2-23 the Corporation Counsel. The training course shall cover: Q1 Legal limits of the authority of a humane officer. U Enforcement limits. L) Vicarious and civil liability. ❑ Professional conduct and demeanor. ❑ Conflict avoidance. ❑ Completion of a citation." (End of Rule 19 summary) After the Humane Officer candidate has successfully completed the required training course and a criminal background check, the Director of Finance administers an Oath of Office to the candidate, along with a badge. This appointment is valid for a period of 2 years, at which time the officer must reapply for the commission. A reappointment is granted should the officer have completed the aforementioned training course again or a basic or advanced course which has been accredited by the American Humane Association, the Humane Society of the United States, or the National Animal Control Association. The Study Team was provided with the following list of HIHS badged employees: 1:3 Keaau - 6 badged employees; all in need of reappointment. • Kona - 3 badged employees; 3 new employees requiring appointment. • Waimea - 2 badged employees; 1 in need of reappointment. It should be noted that the number of badged employees is somewhat misleading, as a few badged HIHS workers are not dedicated exclusively for field service (i.e.: the Executive Director and the Director of Operations are also badged). During the on-site visit, several concerns were relayed to the Study Team regarding the badging process. After interviewing representatives from those agencies involved in this training (Finance Department, Corporation Counsel, Prosecutor's Office and Police Department), the Study Team determined that: • No one agency has taken responsibility for scheduling the badging classes and to coordinate such arrangements with the other departments. • None of the agencies involved were able to present to the Study Team a training outline, a list of identified instructors or a sample of course work materials. • Some of the departments involved considered it difficult to participate in the badging classes due to the lack of coverage in work areas while their own employees are absent. The First Amendment to the Agreement "requires the County to offer training and badging to humane officers twice a year, upon request of the Contractor," however the contract does not identify the County agency responsible for initiating this process. The Study Team felt that: Administration 2-24 D The County should identify an individual (and department) which would be responsible for scheduling the badging classes and to coordinate such arrangements with the other departments. U The County should offer such classes at least twice annually during predetermined months of each year (such as March and September). L) The County should develop a training outline defining course goals, accompanied with training materials that the recruit may retain for future reference. In addition, a list of instructors should be developed to enable the County to draw upon a larger pool of trainers in an effort to alleviate concerns regarding staff shortages and scheduling conflicts. Although the badging process in itself is unusual (the authority of an Animal Control Officer is typically defined by local ordinance and does not require any special commission), the Study Team believes that the badging program should continue. Here again, because of the expense involved with traveling to the mainland United States, most training opportunities offered to HIHS employees is primarily restricted to the State of Hawaii. The badging process offers structured training that HIHS employees might not otherwise receive. Career Development The term career development encompasses a variety of issues closely tied to maintaining highly qualified personnel. This aspect of the "human resource" priority refers to seeking new and improving existing departmental policies, programs, and procedures to maximize the skills, talents and interest of personnel. Career development embodies issues of pay, rank and professional achievement that motivate employees toward organizational goals and objectives. Formal career development activities are programs directed at improving the performance motivation of incumbent personnel. They are also related to maintaining within the agency a reservoir of personnel qualified for positions of advanced specialists, managers and executive level staff personnel. The military services have long recognized the need for non -supervisory tracks for its personnel. Clerical personnel in most governments have three or more tiers in moving through a career ladder. Private industry has been employing the concept for years. Consultant research and practical experience at all levels in Animal Control/Humane work by the Study Team has revealed that personnel often reach a plateau in their careers at the ten to fifteen year level. Generally, personnel have reached the top of their compensation scale through the annual increments by the time they have this level of experience. With the possibility of a career step outside the supervisory track, the employee can be motivated at a critical point in their careers. Administration 2-25 Animal Control/Humane agencies, by and large, are not managed as though there is a "profit motive." There are no widgets produced; therefore, in measuring the qualitative and quantitative products of a Animal Control or Humane department, managers cannot be used as an indicator. To keep employees motivated, recognition is important. There are ample studies that point to "recognition" as more important than compensation to employees. As practitioners in Animal Control, we have always known the importance of recognition. Unfortunately, there is no formal career development program currently in existence within HIHS. Staff members are "encouraged" to expand their knowledge of HIHS operations. HIHS currently does not offer any tuition reimbursement through an agency -wide program. Employee Morale & Productivity The Study Team observed the overall attitudes of the staff to be positive in nature, however several workers were frustrated regarding the increased demands for service by citizens and the lack of acknowledgment (and funding) of these demands by the County of Hawaii. Most employees seemed to be working as a team and there is general job satisfaction. The majority of personnel are concerned about their future and want HIHS to succeed. Staff members are encouraged to pursue new ideas and are given proper credit for their efforts. Any work achievements are rewarded with movie passes, low-cost massages, and an Employee of the Year award (for both the Keaau facility and the Kailua-Kona/Waimea facilities). When the budget allows, financial incentives, awarded during the evaluation process, encourage staff members to perform at an optimal level. Employees are compensated based on the individual's scope of responsibility and the performance of job duties, among other factors. The HIHS Name HIHS distinguishes itself as a full-service organization. Most agencies today promote themselves as "Animal Care and Control" or "Animal Services," which boosts public confidence in the agency's ability to protect people and pets. Recommendations 2.01 A review of work responsibilities should be undertaken; current responsibilities should be shifted to relieve backlogs and improve agency performance. Rating: T 2.02 Any vacant position within the agency should be filled without delay. These positions should be given ample publicity to attract qualified applicants. Rating: 1 Administration 2-26 2.03 The agency should review each position within the HIHS and distribute revised job descriptions, if necessary. Such materials should be properly signed -off (upon approval) and dated. Rating: 2 2.04 All potential employees should be tested to determine the level of skills that they may possess. Drug testing should be a prerequisite upon hiring. Rating: 1 2.05 HIHS should develop a long-range plan that hinges on future expansion and increased service delivery. Every member of the organization should be allowed to participate in the plan's development. Staff members should be provided training in plan development. Rating. 2 2.06 Once manpower levels increase, the agency should identify specific employees as "leads" to strengthen the command structure and provide supervision at all levels of the operation. Lead workers should assist in new recruit instruction. Rating: 2 2.07 The agency should review and revise its policy/procedure manual as soon as possible. This book should then be distributed to all personnel, and employees should be required to "sign off' upon receiving the manual. Policies and procedures should be offered in individual sections to facilitate quick reference and for easy updating. Sample copies of forms, along with an explanation in their use, should also be included. Implementation and revision dates should be predominately displayed. Employees safety issues should be addressed within each procedure. Rating. 1 2.08 Additional office space should be located for line personnel. Rating: 3 2.09 Audits should be performed on a regular basis to insure the integrity of data entry. Rating: 3 2.10 The Animal Shelter should generate monthly reports that provide a more detailed breakdown of Animal Control -related activities (such as types of calls for services, by district and by shift). Rating: 3 2.11 The agency needs to increase its role in the budget process and research the possibility of obtaining grant monies to fund special projects, such as facility upgrades. Rating: 2 2.12 It is recommended that the HIHS improve the budget process by actually describing contract versus non -contractual services within the budget itself. Such an improvement would possibly eliminate much of the confusion regarding the public's service expectations. In previous NACA evaluations, budgeted amounts are actually identified with a specific service (i.e.: field, shelter and administration). In addition, the Study Team would recommend that the budget separately reflect the cost of operating each of the 3 shelters. Such information would provide citizens a more accurate assessment regarding the Administration 2-27 distribution of their tax dollars. Rating: 3 2.13 The County of Hawaii should continue to clarify and enhance the Agreement, to include those suggestions which appear on pages 2-16 and 2-17 of Chapter 2, "Administration." Rating: 3 2.14 All employees should have access to e-mail and the Internet (whether supervisory or not). Rating: 3 2.15 Any promotional candidate should be tested to determine the level of skills they may possess. Rating. 2 2.16 The agency should conduct a department -wide assessment to determine training needs. All current and future training needs, which would encompass all employees, should be included in the budget process. Rating: 3 2.17 HIHS should offer special training (such as "Train the Trainer")to those who educate new employees and provide extra compensation for this added responsibility. Rating: 3 2.18 The agency should identify someone within the organization as a Training Officer. This position would be responsible for tracking all training records and the development of a structured training program for all areas of the agency. Training deficiencies should be instantly identified and dealt with. Rating: 2 2.19 The agency should automate all their training records. Rating: 3 2.20 In regards to "Rule 19" and the Badging Process, the County of Hawaii should: 1) Identify an individual (and department) which would be responsible for scheduling the badging classes and to coordinate such arrangements with the other departments; 2) Offer such classes at least twice annually during predetermined months of each year; 3) Develop a training outline defining course goals, accompanied with training materials that the recruit may retain for future reference. In addition, a list of instructors should be developed to enable the County to draw upon a larger pool of trainers in an effort to alleviate concerns regarding staff shortages and scheduling conflicts. Rating: 2 2.21 The agency should introduce a career development program for all employees. Rating: 3 2.22 The agency's name should be changed to reflect modern times and boost public confidence in the organization. Rating: 3 Administration 2-28 to § i N C r d' x r c 3 W r z i z N S6! ibd N N S r W 7 r z O IE z m N !> M M M M M u -Lt u- ''•:' n n n n n 0 0 0 :ryi'•} ;�:•:, �� d d d O It T 0 0 0 0 U-� o ;Y//,;F.• n n n n n O O n 'Y4'r O d 5°fr m m m m m U iii m cn 0 0 'y?:'•::: d sfi d d d O d 06 O O O M O f^n,:Y� �w U- U- u.. w C�j m6 } .} 0 0 0 0 0 a In { N :3t:'•°i: 0 0 0 0 0 n O O icF:r{ j• 0 0 0 0 0 M M M M M t O O O %t.. 00 0 0 0 M O M in in M in t In M n n n n n O rn n ;• d d d d d O It M ';y;;• 0 0 0 0 0 O y rt,Y ...+.+.;, 0 0 0 t0 O LL lD O n n n n 0- n .'>.'v d d d• d �• O d jr} ' fj.;• O OO O O M O ;•: M M M M M to M rf r';i LL M W U- N :.{ 0 0 0 0 0 Qcr ': :'•?;: U- U- U- U- lei N ILL lel O O O O O r� 0 0 mlC N 3 N G1 M aJ C p C C '� C c 0 >+ J U LA CJ c d o c d d O O n n d a In 0 n n d d m m r:� t:� d d In In d d U- � 00 � w O O d V M M n n d d MM N n d d M M n n d d OO M M n n d d In M rl r, L -F1 O O U -U- O O R d c y Cc TI C d N m � O m m � Y J Monday Tuesday Wed Thursday Friday Saturday Sunday DM 7-3:30 . DM 7-3:30 DM 7-3:30 DM 7-3:30 DM 7-3:30 OFF OFF VM 9=5:30 VM— 9 31:3.0 : VM 9-3:30 WN4 9-3.30 o/c VAI 9=3 4- o/c OFF EFF S13 7:.304 01 c .1S 7:30-4 SB7:304 o/c - 3S 8:30-5 SB 73G-4 a/e 3S 9=5:30 S13 7:304 OFF S13 7.30-4 .1S 9.30- 5TS OFF -5.30 OFF OFF KE OFF I E 730 4 KE 7:313 4 KE 7:30-4 KE -7:304 l 7'3tt- 5:30 o/c OFF AW 9-5;30 AW 9-5:30 OFF AW 9-5`30 . AW 9-5:3-0 _ AW 9=5-:30 OFF SA 8-4:30 SA 8-4:30 SA 84:30 SA 8-4:30 SA 8-4:30 OFF OFF NIS OFF MS8-12 OFF -OFF MS 8=1-2 1VIS 8-12 Ms. 9-3:30 - Keaau Shelter Hours. Monday to. Saturday - 9:00 am to 5:30pm Closed. on Sundays and Holidays Nate: On -calls rotation on Sundays and Holidays HAWAII ISLAND HUMANE SOCIETY COUNTY OPERATIONS PROJECTIONS 7/1/01-6/30/02 EXPENSES 1999 Actual 2000 Actual $384,764.62 - Projected 2001 1 $424,733.81 Projected 2002 $448,800.72 Pa roll_ _ Sa(anoS & Wa es ---'i- ----- g - $422,192.62 FICA SUTA $31,590.98 $33,694.07 $37,485 59 $34,333.25 $7,649.65 $8,893.91 $9,331.58 $9,132.33 Health Insurance $33,996.58 $44,422.46 $36,494.33 1- $32,967.78 Employee IRA- Workers Comp Insurance Temporary Disability Insurance- -� $7,540.77 $_12,433.68 $1,484.00 $7,981.35 $8,868.19$9,004.1_0 $25,625.03 $40,830.00 $1,898.00 $4,499.00 $44 542.00 $4,129.76 Total Payroll Expenses $518,132.54 $507,717.11 $562,043.25 $531,927.26 ccountin -- - --- - -- - i $4,674.35 $0 00 - $ . 0 9 - -- -- - - --- Accour�tin &Audit $5 468.72 ' $5 100.00 Advertising _ _ - $2,922.72 $1,716.44 $1,500.00 $1 500.00 Lard€i!I Fees - Kona $1,197.00 $1,354.15 $1,600.00 I $1,660'.00 Landfill Fees -Hilo $2,085.30 -$2,263 45 $2,160.00 ! $2,160.00 Anima! Supplies_ Drugs- $9,509.75C._$13,149.05 $15,000.0 $15,000.00 -- Animal Supplies: Sags - j $0 $950.00 Kona $736.74 $1,145.48 950.0 _ -i - -- Anima! Supplies: Sags -Keaau $1,772.36 $1,875.05 I $95 0.00 $950.00 - - _ -_ .__ _ Animal Supplies: Bags - Waimea $210.77 t $311.2 - _$450.00 $450.00 P l ----�---- --- - � � $4,619.89 $5 $6,500.00 � $6,500.00 Auto &Truck Expense: Fuel -Kona � $6,583.28$5,106.16 Auto & Truck Expense: Fuel, - _ 336.24 - $6,150.00 $6,150.00 Auto & Truck Expense: Fuel - Waimea $4,865.92 $3,127.34 $5,500.00 $5,500:00 1. IAuto &_Truck Expense: R&M - Kona _ $5,529.47 $5,893.88 $3,000.00 $3,000.00 Auto Truck Expense: - �- 6$3x3 $2,250.00 Auto & Truck Expense: R&M -Waimea$1,512.8$378 6,000.00 _ $4,000.00 Dues & Subscriptions $659.00 $1,257.41 $850.00 $850.00 insurance - T $9,759.06 ! $10,091.00 $12,965.00 ! $12,965.00 TXPress Bank Fees $83.85 j - - $156.30 $201.00 $201.00 Frei ht $673.89 $3,175.43 _$367 00 j $367.00 Kennel Supplies $16,160.08 $13,843.17 $12,500.00 $12,500.00 Legal _ _ $2,390.37 $2,165.63 $3,600.00 $3,600.00 p - ---- -- ---^=- I --- _ $2,800.00 office_Ex Expense: Overhead $479.23 $4,118.99 $2,8.00 00 Office Expense: Kona & Waimea $4,249.44 $2,767.63 $3,300.00 $3,300.00 Office Ex ense_Ke-aau - $2,464.76 $1,678.83 $1,900.00-' $1,900.00 -. __.. P _--gg_ Taxes &Licenses $ $ $244.89 $800.00 _ - $800.00 44 $635.00 $635.00 ----- - - - -- - 33 ---- -. -- - ,35 -._. Postage $1,808.07 Printing f _ $3,022.13 $2,794.33 $3,350.00 $3,350.00 Rent _._...___._ _-_- -_ _ $1,145.87 $1,518.79 $1 622.00 $1,622.00 Rent --- - - - --- -- - Equipment Rental $569.79 $965.92 $737 00 _ $7... -- _ - - - --- _.- _. $5,700.00 (Repairs &Maintenance: Kona $2,603.16'_$6,226.40 $5,700.00 �, Repairs &Maintenance: Keaau $2,330.08 $_4,516.66 $6,000.00 $6,000.00 Repairs &-Maintenance: Waimea - $1,252.24 $253.86 $1,075.00 $1,075.00 Staff Training - - $5,218.75 $513.84 _$41425.00 $4,425.00 Tele ne. hoOverhead$2,195.23 $4,155.38 $5,800 00 1 $5,800.00 -- --- -- - ----- - - TeIe hone: Kona $5,780_11 $4,711.26 $4 075 00 $4,0.75.00 -- - -- -- Telephone: Keaau $6,445.16 $6,261.14 $5 660.0_ $5,900.00 Telephone: Waimea $4,323.85 $3,626.93 $3,750.00 $3,750.00 Travel: Overhead $2,097.56 $2,235.-7 $2,900.00 i $2,900.00 00 [Travel: ravel Kona $1,733.00 $1,072 96 43 i $1,253.00 $1,253.00 80499 0. Keaau $1,747.00 1,747. 4/19/01 r C) U O I I L O = 0 0 0 0 0 0 0 0 0 0 O C O O O O I` 0) Co h n r- O O I7) m t` 0) 0) 0 h 0 C) 0 O 0 t` 0 h j 0� ���� rn 0) L0 rn 0) (3) 11.17) U) (7)rn 0) 0) 0) 0)rnIt) rn rn e $ H w T U m m GL L T O O O O o o a O O O G O O O o o O O \ 0 O 0 ! C- O O O O O Co O O O O O O O O O O O O O O O V L W) C) X) O O O O O O N O O 0 0 0 O O O O N 0 U U U U U U U U U N m CIS I an d a E 0 0 O 0 0 0 0 0 O O C Q o) 3 L U N N L N U N N N N N O o) o) >> = d d7 m -m Co N m m m m C C O C C a E aa) o .0.�1 CD m- - c E E U E~ E E E d w E E U E E O -0 x O L N N O 7 0 7 N >> 7 L L 3 7 0 3 7 0. a w W m Cn 0> XM -r > T> T T T w cn T T> I T T i I c ° CD E O 0 � V ms m m N .0 IMIM m m c Co Y r m a c o E Cu m m m m m m o m O C O O L O 7 O N C 9 CLm •E O O O O L L O O NdCoU)CLU > Y 'S Lm9 Y Y Y Y o X n n Z T n T O 0 W Zm N * c O C Q O y C C C O "O to O N O C C O m to `O N Y C C O O L m T d Y T U O o m m a m Q; > Cn d o o ami C CO m' 0. F -c` U m -o N m m w m y c w v Co m Co -O Co N .O C O C C >' m N O I J LLJ w w C7 J cn Cn Q❑ Y❑ (n to Y>❑ Q❑ Y Cn O I �( Q a❑ Lu Q 2' Z y QI Q i Lel; IQ X! 3:, HAWAII ISLAND HUMANE SOCIETY MONTHLY SHELTER ACTIVITY REPORT HAWAII ISLAND HUMANE JULY 15 1999 m- JUNE 309 2000 SOCA E' •v Dog Licenses: �T KONA WAIMEA KEAAU TOTAL DOGS CATS OTFIER DOGS 6191 CATS OTHER 646 9 DOGS 3,4791 CATS 3,400 OTHER 270 DOGS 5,979 CATS 6,162 OTHER 331 707A1 12,472 STRAY/FERAL 11881 21116 521 OWNER SURR 362 iRl 15 81 36 0 1,472 867 87 1,915 1,084 102 3,101 TOTAL INTAKE 2,243 2,297 67 700 682 9 4,951 4,267 357 7,894 7,246 433 15,573 REDEEMED 220 12 0 32 0 0 355 36 16 607 48 16 671 ADOPTED 380 306 9 38 26 0 419 313 25 837 645 34 1,516 SENT TO HH5 23 4 0 4 27 4 31 EUTHANIZED 1,602 1,956 56 630 655 6 4,128 3,905 293 6,360 6,516 355 13,231 OTHER ADOPTION PERCENTAGE 18 17% 19 13% 21 13% 01 5% 11 4% 31 0% 451 8% 131 7% 231 7% 631 11 Ya 331 9% 281 8% 124 10% Dog Licenses: KONA WAIMEA KEAAU TOTAL BE }1 �11%,&rgtc..4 Y Number Issued 1,695 1811 1,764 3,639 Fees Collected $7,405.80 $947.80 $7,669.90 $16,023.50 Calls for rick -up & Assistance 3,790 393 4,468 8,651 After-hours Emergency call -outs 67 8 140 215 Miles Traveled 40,182 70,899 Dead Animals Collected: 83 _20,750 33 _131,831 237 353 Owner Requested Euthanasia 37 14 86 137 Complaint/Comply Notices Issued 242 48 896 1,186 Citations Issued: HCC 4-30 Dog Running Loose 12 4 42 58 HRS 143.2 License Violation 00 _ 21 21 HRS 7-11 - 1109 Cruelty to Animals 0 0 11 1 Other 1 0 1 2 Total 13 4 65 82 Volunteer Hours 6,241 0 7,080 13,322 Promm Measures FY 1999- 2000 Actual FY 2000- 2001 Estimate EY 2001- 2002 Estimate 90% vicious dog calls will be responded to within 2 hours --- --- 90% 90% of loose animal posing a public safety calls will be responded to within 2 hours --- --- 90% 90% of injured animal related calls will be resppnded to within 2 hours --- --- 90% 90% of calls for animal control assistance by the police will be resp9nded to within 3 hours --- --- 90% 90% of animal cruelty and neglect cases will be responded to in 24 hours and resolved in 14 working days. --- --- 90% 90% of license, loose dog and any non- cruelty/neglect cases will be responded to in 48 hours and resolved in 5 working days. -- --- 90% 24 Sweeps of problem communities per year --- 12 24 Animal Intake Stray/Feral 122472 12 500 12 800 Owner Surrendered 3,101 3,300 3,500 Total Intake 15 573 15,80.0 16 300 Redeemed 671 700 750 Adopted 1 516 1 700 1 800 Adopted animal returned to HIHS for Health Reasons --- 20 15 Sent to Hawaiian Humane Society Oahu --- 25 50 Euthaniaed 13 231 13 000 0 14,000 Adoption Percentage (Based on total intake numbers 10% 11% 12% Adoption Percentage (Based on Adoptable Animals• m- 66% 85/0 Animal Control Related calls 8 651 8,800 8,900 Dog Licenses issued 4,302 3,900 4,000 Doy, License Fees Collected $16,023 $14 625 $15000 Cat Licenses Issued 750 800 850 Impoundment & Boarding Fees Collected $7,423 -- -- After Hour Emergency Call Outs 215 250 .270 Miles Traveled 131,831 135,000 138,000 Dead animals collected 353 375 400 Complaint/Comply Notices Issued 1,186 1,300 150€1 Citations issued FY 1998- FY FY 1999- FYI HCC 4-30 D2g Running Loose 58 60 75 HRS 143.2 License Violation 21 30 35 HRS 7-11-1109 Cruelty to Animals 1 5 10 Other 2 5 10 Total Citations 82 100 130 Citations issued to Repeat Offenders --- 10 20 Number of Vicious D2g Appeal Hearings --- 12 15 Number of Animal Control Cases a-- 2,400 2,880 Number of Calls for assistance from the lice department --- 24 35 Number of Patrols and Animal Pick ups -- 250 300 Volunteer Hours 13 322 13,500 13,800 Number of Volunteers --- 45 65 Number of Trap Rentals --- 450 500 S a neuter CAP coupons issued 2,537 2.165 35000 35000 Number of Animal Control Officers 35000 166000 Total Keaau (also servicing Hilo, Hamakua, Keaau, Puna Kau 5 5 5 Kona also servicing South Kona, Oceanview 2 3 4 Waimea(also servicing Honokaa, Waikoloa, Kohala 2 2 3 Total Animal Control Officers 9 10 12 Program Expenditure Executive Director Board President Grayson Hashida Christina Heliker FY 1998- FY FY 1999- FYI FYI FYI FY 2001- 1999 1998- 2000 1999- 2000- 2000- 20002 Budgeted 1994 Budgeted 2006 2601 2061 Request Actual Actual Budgeted Projected Plumber of Positions 10 10 11 Salaries and Wages 518132 1 435407 1 563139 585984 626898 511745 Operations, 157873 162528 163290 150042 184880 249444 E uipment 8147 0 29368 0 2764 25000 Spa/Neuter CAP 35000 35000 35000 35000 35000 166000 Total 719152 632935 790798 771026 849543 1012189 Subsidy of Animal $81,000 $120,000 Control Contract by Hawaii Island Humane Society Executive Director Board President Grayson Hashida Christina Heliker LO z m m cm 0 cc cu cu cu E m EE cu m E 0 a: ry a� CD (D00 m " W CD 0 o ' .�� w c� to 0) 0) 0) N CD 0 co W � � N ca ca � � cu ca ' c c c c e c c c c o c . 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O O ctt E ca E ca E- M I Ix M: w Q N 'MY (D J w M im M j Association THE PROFESSIONALS m CHAPTER 3 COMMUNICATIONS An Animal Control department's communications system is an integral part of the agency's operations, not an auxiliary function. The effectiveness of the communications system is a critical factor in the delivery of Animal Control services. All components of a communications system, including the telephone system, command and control operations, radio communications, and personnel, must work properly if the system as a whole is to function efficiently. A communications system, including the personnel and equipment, must be as dependable as possible. The system must provide continuous, 24 -hour -a -day operation. Communications failures or inefficiencies jeopardize Animal Control effectiveness and public safety by depriving the community of prompt service. Any interruption in communications, no matter how brief, might be the moment that an emergency arises. Dependability should be built into a communications system by; 1) purchasing the most rugged and dependable equipment available; 2) instituting an adequate preventive maintenance program; 3) maintaining sufficient standby equipment; and 4) carefully selecting, training, and supervising communications personnel. The day when communications meant answering a telephone and dispatching an officer is long gone. Today, Animal Control communications have emerged as a very sophisticated duty, requiring intensive training and career -oriented personnel. Within the HMS, Humane Officers are dispatched via their own communication service. The agency is striving to provide quantitative and qualitative dispatch services to the citizens within the coverage areas. The system and procedures for Animal Control work place unique demands on them, which require a certain degree of knowledge and patience on the part of the telecommunication staff. The Shelter Managers oversee the communication system within their assigned jurisdictional areas. Written communication procedures are offered within the HIHS S.O.P. and the "caller information" sheet. Telecommunications System At the time of this study, dispatching duties were not assigned to any individual employee. Instead, these responsibilities are shared by several workers, including Humane Officers. The manner in which this service is offered is unusual and not typically found in Animal Control work. The dispatch schedule was described as follows: Li Kailua-Kona - 8:00 am to 3:30 pm, Tuesday, Thursday, Friday and Saturday; 8:00 am to 6:00 pm, Wednesday; closed on Sunday and Monday. LJl Keaau - 9:00 am to 5:30 pm, Monday through Saturday; closed on Sunday. Communications 3-9 Ij Waimea - 12:00 pm to 4:00 pm, Tuesday through Saturday; closed on Sunday and Monday. Other workers (typically another Humane. Officer) offer dispatch relief whenever required. Telecommunications is performed within the public reception areas of each respective shelter. All three systems are staffed during hours of normal operations, however the employee charged with dispatch at the time may have other responsibilities. (Note: Since only 2 employees are assigned to the Waimea shelter, this facility is sometimes required to be closed during normal hours of operation, to allow those workers to respond to emergency field calls. These closures are documented on the "Waimea Shutdown Log.') Kailua-Kona Communications Center The "cut-off' time for routine calls is typically 30 minutes prior to the end of the officer's shift. As phone service continues until each shelter "signs -off," pending routine calls accepted after the "cut-off" time are queued in the system for a later response. Since HIHS does not answer non-priority calls on those days when routine field service is not offered, some calls are allowed to "hold -over" until the next scheduled service day (or later). The agency does not currently utilize a software program for dispatching. Instead, all incoming complaints are logged on paper (the Kailua-Kona operation transfers complaint log information to a computer, then a complaint record is generated for the officer's response). `Important message" forms and "phone call" logs support this process. Case numbers are not assigned to all service calls; only actual complaints are identified with these numbers (impounded animals are identified by a number preprinted on the Intake Release Form). These logs offer only limited information in regards to incoming complaint and clearance dates and times. The Study Team found the current system to be antiquated and unreliable, as the system does not track enough information for HIHS to make important decisions relative to staffing, response times and workload. The current system does not track "queuing" time (queuing time is that period of elapsed time between initial receipt of a call and dispatch of the call to a field officer) and travel time (the time from dispatch to the time of arrival). The Study Team was unsure as to the method currently being used to track service call response as a performance measure, since the data presented for review offered no information on dispatch and arrival times. As these details are not available, calculating the exact response time of HIHS Officers for service delivery is not possible (nor can it be verified using the current dispatching system). In short, an effective dispatching system must offer the following: Communications 3-2 ❑ Documentation as to the type of complaint, complainant information (if offered), type(s) of animals involved, location where the problem is occurring, and any owner information. 1J Incoming complaint dates and times should be logged; all service call (regardless of the nature) should be assigned a case report number (CRN). ❑ The time and date that the call is assigned to a field officer for a response should be logged. ❑ The time and date that the field officer arrives on the scene of the complaint should be logged. U The time and the date that the field officer clears the scene of the complaint should be logged. Since only dispatched calls are tracked, it would be impossible to determine the total number of telephone calls that the HIHS staff actually process. Personnel are required to gather details on the type of complaint, complainant information (if offered) and description and number of animals involved. This information is then entered onto the written logs and relayed to field personnel by mobile phone or "queued" for a later response by a field officer. The lack of a computer-aided dispatching software greatly diminishes enforcement activities. Under the current system, prior complaints and infractions must be checked manually or the officer would need to have some personal recollection of the violator and the previous offense. In addition, addresses cannot be "flagged" for problem citizens. Written logs and/or a computer database is also used to track citations. Whenever officers issue citations in the field, they have no idea as to the violator's criminal disposition since the agency does not have access to a criminal record's database (access varies from state to state; it is fairly common in some areas of the United States for Animal Control agencies to have access to a criminal records database, usually when affiliated with a Police Department; such a database serves as a valuable tool in researching prior criminal convictions and outstanding warrants). Dispatch and telephone services at all 3 facilities are located within public reception areas, which affords little privacy. The Study Team observed shelter visitors and other employees frequently interrupting the dispatcher, resulting in excessive background noise and loss of concentration. It is felt that the dispatch area needs to be moved to a more restricted area, thus promoting a quieter working environment. Although the agency has identified 3 coverage districts, HIHS dispatches officers to calls anywhere in their jurisdictional areas. It is fairly common for dispatch to send field personnel from one area to another when the call satisfies the prioritization list or there is a shortage of manpower on any given shift. Staff members are provided maps (which details exact street locations) to assist in determining jurisdictional responsibilities. Since the agency is responsible for such a large coverage area, low -priority service calls are routinely held over for a response during a certain day of the week. While the Study Team understands the purpose of holding such calls (limited manpower, driving time, fuel costs, Communications 3-3 etc.), this practice is unusual and is not typically found in Animal Control work. Within most agencies, service call response is dictated by the priority of the complaint or the order in which the complaint was received, not by driving distances or an officer's assigned coverage area. After -hour emergencies are directly dispatched by a contracted answering service. Callers to HIHS after normal service hours are directed to the answering service (via an answering machine), who will then contact the appropriate on-call personnel. During those occasions in which the Waimea facility is closed during normal hours for emergency call response, callers are also directed to the answering service. On-call personnel are compensated for stand-by assignments and/or any response to an after-hours emergency. As stated later in this report, all Field Service Delivery Vehicles (FSDV) are equipped with only mobile phones (all radios were removed from service approximately 2 years ago). In addition, HIHS officers are not assigned a portable radio. Since many Animal Control Officers throughout the United States do not carry sidearms and are not trained in self- defense techniques, the portable radio is the only "safety net" the officer can rely on to call for help when confronted by a hostile citizen or a vicious animal (injuries and assaults involving Animal Control Officers continues to increase, prompting many employees to file lawsuits against employers for failure to properly train or equip). Any on-call officer is also assigned a mobile phone and a pager. Oddly enough, a mobile phone assigned to a Waimea officer is fixed -mounted to the vehicle. Thus, should the need arise for assistance, the officer would be required to return to the vehicle to communicate with dispatch. This is the first time in any NACA evaluation in which an agency was discovered not to offer field officers mobile or portable radios. These workers should always be afforded 2 modes of communication (such as a cell phone and a radio) as not to rely solely on any one device. In addition, officers should be able to communicate with dispatch while inside and outside the FSDV. HIHS officers do not use codes and/or "dispositions" to communicate with the dispatcher and with each other. Field personnel are required (by policy) to check-in with communications upon going into service, and to check-out when leaving service, however none of the field workers were observed complying with this requirement. Such a practice places officers in a dangerous situation. Typically with most telecommunication systems, there are some "dead spots" which prevent officers from communicating with dispatchers. These "dead spots" are caused by equipment limitations or the topography of the land and the inability of radio signals to reach the tower. The majority of officers interviewed felt that the current communication system is unreliable and will not protect personnel in the event of dangerous and/or life- threatening situations. A few officers stated that the radios previously offered were more reliable than the current mobile phone system. Communications 3-4 Officers are not routinely checked in the field for safety; this responsibility relies entirely on the individual dispatcher to track all officers in the field. In Keaau, the Study Team was advised that the dispatcher is required to check the status of all field officers every 2 hours, but with multiple employees sharing these responsibilities (and with constant interruptions from shelter visitors) this task would be difficult to monitor. In addition, since none of the field staff was observed checking -in (or out) with dispatch, it would be difficult to locate an officer in the field should an emergency occur. Telephone Communications The Study Team discovered that most of the HIHS telephone system is functioning at an "acceptable" level. Phones are answered by the front counter staff, the dispatcher or other employees during normal operating hours. After-hours, any emergency calls are referred to the stand-by HIHS officer. The allocation of phone lines is described as follows: 13 Kailua-Kona - Two phone lines dedicated for public use. [a Keaau - Two phone lines dedicated for public use. [a Waimea - One phone line dedicated for public use. Depending on the location in which the call is directed, there is usually a minimum of 1-2 staff members available to monitor these lines and route calls to the appropriate area. Any employee who answers the phone is responsible for screening calls and providing information about services the organization does not provide. The majority of phone calls received are in regards to impounded animals, adoptable animals, trap rental, licensing, animal complaints and lost and found reports. The agency does not track the quantity of phone calls received at any of the 3 facilities. Since field service begins at varying times (depending upon the officer's work schedule and shelter -related responsibilities), incoming routine calls originate at that time and continues until phone service is transferred to the answering service. Telephones are answered during all hours of operation. After-hours, citizens must contact the answering service (a log of all after -hour communication is faxed to each sheltering facility every morning). Such calls are then passed along to on-call personnel, if necessary. There is no "on-call" risk policy currently in existence. Recommendations 3.01 The agency should hire a professional communications consultant to evaluate its current communications center (including phone service). Such an assessment should be performed on all areas of operations (field and shelter) to provide improved customer service, insure officer safety and to lessen the stress load of the staff. Rating: 3 3.02 HIHS should consider offering a central, island -wide communications center. Such a center would handle (and route) incoming citizen inquiries among the three facilities, dispatch complaints to officers in the field, and monitor all field activity. Rating: 3 Communications 3-5 3.03 The agency should purchase a software program in an effort to capture vital data regarding response times and workload. This software should also provide knowledge of prior animal -related complaints/offenses and perform address and name queries. All service calls should be assigned a case number. In addition, dispatch, arrival and clearance times should be logged for each individual service call. Rating: 3 3.04 All current dispatch centers should be moved into a restricted area of each building, away from the main office (also see 3.02). Rating: 1 3.05 Portable radios should be purchase and issued to all field personnel and their use made mandatory. Rating: 1 3.0E Field personnel should communicate their location with dispatch (at all times) on any call or follow-up, regardless of the nature. Rating: 1 3.07 The agency should evaluate all communication equipment for functionality and provide upgrades, if necessary. Rating: 1 3.08 Communication personnel should be offered formal training in the use of communication software and equipment, telephone etiquette and public relations. Officers should also receive training in proper radio protocols. Rating: 3 3.09 To support future staffing needs, the agency should continually track the number of shelter visitors and phone calls received. Rating: 2 Communications 3-6 National Animal 0 Control Association THE PROFESSIONALS CHAPTER 4 SHELTER OPERATIONS Facilities HIHS serves the County of Hawaii through three animal sheltering facilities, which are detailed as follows: 1:1 Kailua-Kona - 74-5225 Queen Kaahumanu Highway, adjoining the Sanitation Transfer Station; a County -owned facility constructed in 1975, and is leased to HIHS at no cost. ❑ Keaau - 1.5 miles south of Keaau on Highway 130; an HIHS-owned facility which opened in March of 1974, and is offered lease -free to the County of Hawaii. a Waimea - On Mamalahoa Highway, next to the Waimea Airport; a Parker Ranch - owned facility (an HIHS worker "guessed" that this facility was constructed in 1972), which is leased to the agency for $100.00 monthly. HIHS is responsible for the maintaining all 3 facilities. The HIHS Facilities Committee oversees this process. The Study Team was advised that a "facility development plan" has been developed, however this plan was not presented for review. The location of these facilities are fairly easy to access by the general public (although some complaints were received regarding the location of these sites, the Study Team experienced no difficulties in finding these facilities). All 3 facilities offer identifying signs posted along adjoining streets and/or in front of each facility to help direct the public. Several modifications and improvements have been made to all 3 buildings since the time they were constructed. Although a floor plan of each facility was offered to the Study Team for review, this information did not offer detailed information regarding the total square footage of each building. For the purpose of this report, specific design information is offered separately as to not confuse the reader. While some of this information is repetitive, it is important for the reader to gain some knowledge of each individual facility and its design and age limitations. Kailua-Kona Facility - The main building is primarily constructed of wood with a composition -type roof. Separate areas (detached from the main building) are offered for administrative employees, euthanasia, after -hour citizen drop-offs, and exterior kennel portions. The grounds in front of the main building are neatly maintained and free of debris (some clutter exists around the rear of the site). The exterior of the main building is also well maintained. Within the animal holding/kennel sections and service areas, some clutter was visible. Unacceptable sound levels were not evident in the animal holding sections. Shelter Operations 4-9 Signs are offered inside the building, directing the public through the facility. Exit signs were also observed to inform or protect visitors. A sign (free-standing) is located at the front of the drive and on the fence near the front gate. Hours of operation are posted on the entrance gate, along with an emergency phone number. The main entrance allows the public easy access. Within the animal holding sections, the public may view dogs and cats from inside (or outside) these areas. All animals are housed within the main Kailua-Kona Customer Service Area kennel area or the 2 separate kennel areas (another fenced section is offered for small livestock). Security fencing is provided around the confines of the facility to protect the surrounding area. The perimeter fencing is in good condition, however it does not provide a secure place for the unloading of animals. Officers typically unload impounded animals at the rear of the main kennel area. Should an animal escape, it would take some effort to recapture it, as the perimeter fencing covers a large area. In addition, the entrance gate is left open during public receiving hours, thus an escaped animal would be able to leave the facility grounds at -will. Outside lighting was stated to be inadequate to provide protection for employees reporting to or leaving duty in the dark. Parking for the public is available within the public access area; there appears to be a very limited number of spaces available. The facility offers limited access to disabled persons. Keaau Facility - The main building is primarily constructed of concrete block with a metal roof. Separate sections (detached from the main building) are offered for cat holding areas, administrative employees, recovery and surgery, and exterior kennel portions. The grounds in front of the main building are very neat and attractive, and free of debris (some clutter exists within the animal receiving and food prep/laundry areas). The exterior of the main building is also well maintained. Within the animal holding/kennel sections and service areas, some clutter was visible. Unacceptable sound levels were not evident in the animal holding sections. Signs are offered inside the building, directing the public through the facility. Exit signs were also observed to inform or protect visitors. A sign (free-standing) is located at the front of the drive and on the building (which is somewhat obstructed by foliage). Hours of operation are posted outside, along with an emergency phone number. The main entrance allows the public easy access. Within the animal holding sections, the public may view dogs and cats from inside (or outside) these areas. Shelter Operations 4-2 All animals are housed within the main kennel areas or the 2 separate buildings for cats (a portable corral is offered for the temporary quartering of livestock, along with a "duck/geese pen"). Security fencing is provided around the confines of the facility to protect the surrounding area. The perimeter fencing is in good condition, however it does not provide a secure place for the unloading of animals. Officers typically unload impounded animals at the rear of the animal receiving area. Should an animal escape, it would take some effort to recapture it, as the perimeter fencing covers a large area. In addition, the employee access gate to this area is left open during operational would be able to leave the facility grounds at -will. Keaau Customer Service Area hours, thus an escaped animal Outside lighting was stated to be inadequate to provide protection for employees reporting to or leaving duty in the dark. Parking for the public is available within the public access area; there appears to be a very limited number of spaces available. The facility offers limited access to disabled persons. Waimea Facility - The main building is primarily constructed of metal. All animal holding areas are offered within the main building, except those areas identified for livestock and after -hour citizen drop-offs. The grounds in front of the main building are neatly maintained and free of debris (some clutter exists within the perimeter fencing area). The main building appeared to be in structurally sound condition. Within the animal holding/kennel sections and public reception areas, some clutter was visible. Unacceptable sound levels were evident in the kennel holding sections. A few signs are offered inside the building, offering information and directing the public through the facility. Exit signs were also observed to inform or protect visitors. A sign (free- standing) is located at the front of the drive and on the front gate. Hours of operation are posted on the entrance gate, along with an emergency phone number. The main entrance allows the public easy access. Within the animal holding sections, the public may view dogs and cats from inside these areas (dogs may also be viewed from the exterior of the kennels). All animals are housed within the main kennel area. Security fencing is provided around the confines of the facility to protect the surrounding area. The perimeter fencing is in good condition, however it does not provide a secure place forthe unloading of animals. Officers typically unload impounded animals at the building's front entrance. Should an animal Shelter Operations 4-3 escape, it would take some effort to recapture it, as the perimeter fencing covers a large area. In addition, the entrance gate is left open during public receiving hours, thus an escaped animal would be able to leave the facility grounds at will. Outside lighting was stated to be inadequate to provide protection for employees reporting to or leaving duty in the dark. Parking for the public is available outside the perimeter fencing area; there appears to be an unlimited number of spaces available. The facility offers limited access to disabled persons. It should be noted that the Waimea facility is scheduled for a kennel expansion within the next few months, using donated materials, labor and grant monies to ensure the project's success. Space Allocations Specific spacial needs are addressed in other areas of this report. Although competing with facility age and design limitations, workers are striving to maintain sanitary conditions and to offer a positive environment for animals. For the 1999-2000 Fiscal Year, the facility had impounded 15,573 live animals. During peak periods of the year, all 3 facilities generally operate at 100% capacity. Office areas Kailua-Kona - This facility is open to the public five days a week, Tuesday, Thursday, Friday and Saturday, 8:00 a.m. to 3:30 p.m., and Wednesday 8:00 am to 6:00 pm. The shelter is closed on Sunday and Monday. In general, the shelter lobby area offers limited space and is not arranged in such a way as to accommodate a smooth, incoming traffic pattern. There is one public entrance at the front of the building; the rear entrance is primarily used for staff access. Visitors must first enter the customer service area before gaining access to the animal holding sections. Within the customer service area, a counter is offered to separate the public from employees. However, there are no physical barriers (such as a counter window and door) to prohibit visitor access into employee work areas. During normal business hours, the public is allowed unrestricted access to the animal holding areas, and are usually accompanied by an HIHS employee. The appearance of the customer service area is bright and well illuminated. Keaau - This facility is open to the public six days a week, Monday through Saturday, 9:00 a.m. to 5:30 p.m. The shelter is closed on Sunday. The shelter lobby area offers limited counter space and visitor congestion was observed frequently during the on-site visit. There is one public entrance at the front of the building; the rear entrance is primarily used for staff access. Visitors typically enter the customer service area before gaining access to the animal holding sections (however, some visitors were observed entering holding Shelter Operations 4-4 areas via an outside perimeter gate, located near the front entrance). The facility also offers a separate entrance for citizens who " wish to drop-off impounded or surrendered y animals. .:..s. Within the customer service area, a counter g is offered to separate the public from employees. However, there are no physical barriers (such as a counter window and door) to prohibit visitor access into employee work areas. Curing normal business hours, the public is allowed unrestricted access to the animal holding areas, and are usually Waimea Customer Se accompanied by an HIHS employee. The appearance of the customer service area is bright and well illuminated. Waimea - This facility is open to the public five days a week, Tuesday through Saturday, 12:00 p.m. to 4:00 p.m. The shelter is closed on Sunday and Monday. The shelter reception area also serves as the employee office, and offers no customer service counter. Instead, shelter visitors must utilize employee work stations in which to complete paperwork. There is one public entrance at the front of the building; another entrance is primarily used for transporting dogs to the kennel area. Visitors typically enter the main office before gaining access to the animal holding sections (the cat room is the first area encountered once a visitor enters the building). As stated previously, there is no customer service counter offered to separate the public from employees. During normal business hours, the public is allowed unrestricted access to the animal holding areas, and are usually accompanied by an HIHS employee. The appearance of the customer service area is bright and well illuminated. Within the Kailua-Kona and Keaau facilities, the customer service areas are frequently served by Humane Officers, kennel personnel, the Shelter Managers or volunteers. In Waimea, the Humane Officers provide all of the customer service. As reflected in other areas of this report, the Study Team found it unusual to assign field officers to work in the customer service and kennel areas. The "Front Desk Humane Officer Duties" information sheet details these specific responsibilities as follows: • Handle all animal -related complaints and calls. • Function as the dispatcher. • Approve adoption applications. • Approve adoption paperwork. h•. In regards to redemptions: Checks for prior impoundments, complaint notices, and notices to comply and citations before the animal is released. Serves the customer with one of the above, if applicable. Shelter Operations 4-5 U Direct supervision of front desk volunteers. The "Front Desk Volunteer Duties" information sheet also details specific customer service responsibilities: • Sell dog licenses, cat identification tags and merchandise. • Maintain lost and found data; accept information from customers and match -up with sheltered animals. • Handle dog/cat trap and anti -bark collar rentals. ❑ Intake procedure (subject to approval of the Veterinary Technician or Humane Officer). • Adoptions (subject to approval of the Humane Officer). • Redemptions (subject to approval of the Humane Officer). • Contact people on "wish list" regarding adoptable cats and dogs. ❑ Keep enough front desk forms on hand, copy as necessary. The Study Team was also provided a list entitled "Front Office Staff Task List," however these responsibilities were not identified with any particular group of employees. The Study Team assumes that these tasks are delegated to any employee who is assigned to work within the customer service area. Within all 3 shelters, delays in service sometimes occur in the customer service area during peak hours of operation. In these instances, a televisionNCR would provide the public some form of entertainment while waiting. This device can be used for educational tapes aboutthe agency or general animal care issues. This practice can serve to calm customers waiting for service. Animal housing/Care Although competing with the age and design of all 3 facilities, the HIHS staff is doing everything possible to ensure the comfort and quality care for all impounded animals. The animal holding areas are divided into several sections, which are classified to assist workers in determining specific impounding placement. These areas are described as follows: Kailua-Kona Area # of Kennels # of Cages Restrictions Main Kennel Area 18 0 Puppies or Adult Dogs - Adoptable Outdoor design with roof (no walls); concrete floor; only fence partitions; no resting benches; Dimensions: 13' long x 4' wide x 74-75" high (2 oversized kennels measure 13' long x 8' wide x 68-71" high); kennels do not have covered tops; stainless steel and galvanized food bowls; water piping system with stainless steel water bowls; kennel doors are not padlocked; waste trench located outside of kennel; some animals offered toys. Shelter Operations 4-6 Area # of Kennels # of Cages Restrictions Isolation Area 12 0 Puppies or Adult Dogs - Stray Outdoor design with roof (no walls); concrete floor; only fence partitions; no resting benches (except 2 kennels were offered whelping benches/blankets); Dimensions: 9'8" long x 44-48" wide x 73-76" high; kennels do not have covered tops (except 1 kennel is offered a partially covered top); stainless steel food bowls; water piping system with stainless steel water bowls; kennel doors are not padlocked; waste trench located outside of kennel. Evidence/Long-term Holding 4 0 Dogs - Court Holds & Evidence Outdoor design with roof (nowalls); concrete floor; only fence partitions; no resting benches; Dimensions: 2 kennels measure 10' long x 51-63" wide x 70-72" high; 2 remaining kennels measure 10' long x 4' wide x 73-76"high; only 1 kennel is offered a covered top; stainless steel food bowls; water piping system with stainless steel water bowls; kennel doors are not padlocked; waste trench located outside of kennel. Puppy Isolation Area 1 0 Puppies - Isolated Outdoor design with roof (1 wall); concrete floor; only fence partitions - although kennel does not adjoin other kennels, puppies may come into contact with incoming animals led through this area; no resting benches; Dimensions: 11' T long x 8' wide x 83-87" high; kennel is offered a covered top (roof); stainless steel food bowls; water piping system with stainless steel water bowls; kennel door is not padlocked. Cat Isolation Area = 0 1 5 1 Kittens & Cats - Stray/Isolated 5 stainless steel cat cages; all cages have resting shelves; stainless steel water bowls; plastic food bowls and litter pans; all cages are not paper -lined; most animals provided toys; door to this room is locked to prohibit public access; this area is in close proximity to the puppy isolation area (cats are visually exposed to dogs). Cat Adoption Area 0 31 Kittens & Cats - Adoptable 14 stainless steel cat cages; 13 cages have resting shelves; stainless steel water bowls; plastic food bowls and litter pans; all cages are not paper -lined; most animals provided toys; this area is in close proximity to the main kennel area some cats are visually exposed to dogs). Source: HIHS Keaau I Area # of Kennels # of Cages Restrictions "Original" Kennels 17 0 Adult Dogs - Adoptable Outdoor design with roof (no walls); concrete floor; only fence partitions; no resting benches (offered only to older/injured animals overnight); Dimensions: 11' 1" long x 42-47" wide x Thigh (2 oversized kennels measure 11' 1" long x 94" wide x Thigh); each kennel is offered a 48" wide x 36" high "box' (constructed of concrete block and wood, with a hinged door on top, which is designed to allow for easier feeding of animals); kennels have partially -covered tops; stainless steel food bowls; water piping system with stainless steel water bowls; kennel doors are not padlocked; waste trench located outside of kennel; kennels 12-17 considered "isolation" in which "healthier", more adoptable animals are held; some fencing in this area offers inverted chain-link (sharp points are at the bottom - a hazard to animals). Shelter Operations 4-7 Area ## of Kennels # of Cages Restrictions "New" Kennels 16 0 Puppies or Adult Dogs - Stray & Adoptable Outdoor design with roof (no walls); concrete floor; poured concrete/fence partitions; no resting benches (offered only to puppies/older/injured animals overnight); Dimensions: 15'4" long x 43-56" wide x 89" high; kennels do not have covered tops, however fencing is offered to roof, except at door area; stainless steel food/water bowls; kennel doors are not padlocked; waste trench located outside of kennel; incoming dogs are held in this area for 48 hours; stray/adoptable puppies always held in this area. Cat Isolation Room F 0 7 Adult Cats - Stray/Isolated A free-standing concrete block building with 2.5 open-air sides; 7 stainless steel cat cages; stainless steel water bowls; stainless steel or plastic food bowls and litter pans; all cages are paper -lined; all animals provided towels to rest on. Cattery 1 2 7 Kittens & Cats - Adoptable A free-standing concrete block building with open-air windows; 7 stainless steel cat cages; 1 cage has a resting shelf; 2 large kitten rooms measuring 93" long x 91" wide x 98" high w/concrete shelves for kittens to rest on; stainless steel water bowls; stainless steel or plastic food bowls; plastic litter pans; all cages are paper -lined; all animals provided towels to rest on. Recovery Room 0 11 Spay/Neuter/Injured Animals Included within the Cattery Building listed above; 11 stainless steel cat cages; plastic food/water bowls when appropriate; plastic litter pans; all ca es are paper -lined; a pet carrier also housed a rabbit. Source. HIHS Waimea Area # of Kennels # of Cages Restrictions Main Kennel Area 6 0 Puppies or Adult Dogs - Stray & Adoptable Inside design with open-air rear wall; concrete floor; sheet metal partitions; no resting benches; Dimensions: 8' long x 48" wide x 6' 1" high (1 kennel measures 8' long x 36" wide x 6' 1" high); kennels have covered tops; stainless steel food and water bowls; kennel doors are not padlocked; waste trench located outside of kennel. Cat Room 1 0 7 Kittens & Cats - Stray & Adoptable 7 stainless steel cat cages; stainless steel and plastic food/water bowls; plastic litter pans; all cages are paper -lined; some animals observed with towels to rest on. Source: H1HS Incoming animals are generally placed directly in a cage or kennel or processed in the receiving area; these animals are given a quick visual evaluation by the Animal Health Technician (or other shelter employee) when impounded. If a problem is found, the animal is treated by the Animal Health Technician. For those animals with serious medical needs, the Shelter Manager or Staff Veterinarian is notified for further action. All 3 facilities also offer after -hour "holding pens" (also known as "drop boxes"). This topic is addressed further at the end of this chapter in "After -,+-lours Deposit Boxes: Pro & Con." Shelter Operations 4-8 Cats are housed in a variety of areas within the 3 facilities. At the Kailua-Kona facility, some cats are visually exposed to dogs. At the Keaau and Waimea facilities, these animals are sheltered separately from dogs to decrease the risk of stress and anxiety. For the most part, puppies are not typically housed in separate areas away from larger adult dogs (the Kailua-Kona shelter does offer a puppy isolation area). All areas frequently run at full capacity during peak periods. Within the kennel areas, dogs are housed in "outdoor designed" runs (this design may be defined as a facility which does not offer at least 2 permanent walls). The housing portions of each kennel is reflected in the aforementioned charts. It appears that these dimensions allow for larger animals to turn around freely, stand, sit, stretch and lie in a normal position. However, not all kennels include steel or concrete partitions, which offer a physical barrier between kennels (previously, the Kailua-Kona facility offered metal partitions; these dividers were removed in January of 2000 because of their deteriorated condition). The kennels are constructed of 9 -gauge or better chain-link fencing (some of which was in poor condition). At the time of the on-site review, a private contractor was observed repairing several sections of the "Original Kennel" fencing at the Keaau facility. In addition, some fencing within this area offers inverted chain-link (sharp points are at the bottom, which is a hazard to animals). Tops are not provided on most kennels. Nesting benches are also not provided for the majority of dogs (several resting benches were observed at the Keaau shelter, however none were observed in use). Whelping boxes, blankets and towels are offered to female dogs and their puppies, older dogs and injured animals. Special considerations are given older, newborn or ill animals (some HIHS policies address health, food and housing issues). Kennels are not padlocked to prohibit public access. Instead, some kennel doors were observed secured by a metal clip. Within the kennel areas, the floors are concrete and walls are chain-link fencing. It appeared that the majority of kennel floors were sealed or coated with non -permeable materials. The majority of floors have a minimum pitch for drainage. Several areas within all 3 shelters had visible signs of deterioration, creating difficulties in cleaning and sterilizing. Drain troughs are located outside of each kennel. Sewer lines serving some of these gutters were said to be inadequate, and obstructions sometimes do occur. Cats are housed in stainless steel cages of various sizes, and all are provided with kitty litter trays (plastic or stainless steel). The majority of cages are paper -lined (at the Kailua- Shelter Operations 4-9 Kona facility, cat cages are not lined), and cats are provided stainless steel or plastic water and paper containers. None of the stainless steel cages were padlocked to prohibit public access. Nursing mothers and kittens are given special considerations in regards to housing and diet (some HIHS policies address health, food and housing issues). Within the kennel areas, dogs are sometimes grouped together within the same kennel. At the Kailua-Kona shelter, only puppies are held in groups. At the Keaau Kennel ,Area (Exterior) Keaau facility, the "new" kennel section sometimes holds 3-4 adult animals or puppies; the "original" kennel section holds 1-2 adult animals. In Waimea, 2 adult dogs and up to 5 puppies may be held within the same kennel (this facility attempts to keep puppies separated for health reasons). Adult animals are separated by temperament and sex. Unfamiliar cats are not housed together. Kittens or puppies from the same litter sometimes share the same kennel or cage. Of course, those animals held in isolation or for quarantine are housed individually. There is limited space available for isolating animals that are either sick, or suspected of being sick, from the general animal population. Isolation areas are described in the aforementioned animal housing charts. In Waimea, isolated cats and puppies are sometimes held within the Euthanasia Room, which exposes these animals to the visual and audible reactions of euthanised animals. Since the animal holding areas offer some form of open-air exposure, an air exchange to minimize odors and to provide for disease control is not offered at any of the 3 facilities. Ceiling or portable fans are used to promote air circulation. In addition, no animal holding areas offered heating or air conditioning. Inadequate lighting was most evident within the Kailua-Kona and Waimea kennel areas for safety and viewing (the lighting within the Kailua-Kona cat areas could also be improved). Walkways and corridors are of sufficient width. All 3 facilities are designed to handle some varieties of exotic and wild animals. In Kailua- Kona, a fenced "dog -walk" area is used to temporarily house small livestock. The Keaau and Waimea shelters offer a portable corral and livestock holding area, respectively. Each facility also offers an area for the grooming and/or dipping of animals (in Waimea, this area is the laundry room or "outside"). Kennel operations are overseen by a Shelter Manager. The Keaau Manager also serves as the HIHS Director of Operations. The Kona Manager also serves as the Waimea Manager, and travels to that facility at least once weekly to interact with employees on a personal basis. The duties and responsibilities of the Shelter Manager include: Shelter Operations 4-10 • Maintain all physical aspects of the shelter including buildings, kennels, equipment, vehicles and grounds. • Create employee schedules. • Review and assign duties to shelter personnel. Complaint calls shall be reviewed and assignments made on a daily basis. It is the manager's responsibility to prioritize incoming complaints and make assignments accordingly. ❑ Maintain all shelter records including complaint logs, inventory of controlled substances and daily drug usage logs, and animal records and correspondence. Shelter Manager may also be required to place orders for and assure adequate inventory of drugs, vaccines and/or other shelter supplies. ❑ Periodic reviews of written reports and records that are routinely completed by staff including, humane officers' reports, adoption records, health records, citations, complaint/comply notices and all other written correspondence issued from the shelter. U Ensure that all complaint calls received are responded to and all follow-up service is provided to each complainant. L) Supervises the enforcement of county and state animal control ordinances. L) Recommends performance standards to be used for evaluation of employee performance, development and training. U Prepares performance evaluations for assigned personnel to determine achievement of performance standard. L) Issues disciplinary notices and counsels personnel whose performance does not meet the standard. Keep supervisor informed of progress of any employees involved in the disciplinary process. • Develops goals for the shelters and implements programs to enhance and improve the work environment of the staff. • Maintains good working relationships with managers and staff of other shelters, agencies such as police, prosecutor's office, DNLR, etc. L) Keep the Executive Director/Director of Operations informed on cases or events as needed. U Other duties as assigned. The Animal Health Technicians are directly responsible for administering "the day-to-day health care needs of the animals in those shelters." The Study Team was not presented with this position's specific duties and responsibilities. It should be noted that an Animal Health Technician is not directly assigned to the Waimea shelter. Instead, HIHS relies heavily on the Humane Officers assigned to that facility to monitor the health of sheltered animals and to communicate any serious medical needs to the Kona Shelter Manager or the Staff Veterinarian. The Study Team was also not presented with the specific duties and responsibilities of the Kennel/Shelter Assistants. Shelter Operations 4-11 Veterinary Suppori A part-time Staff Veterinarian offers on-site veterinary support. This employee's essential duties and functions include: L) Select, supervise, train and perform euthanasia of impounded animals according to HIHS procedures. U Supervise all employees of the department to provide adequate personnel for hours of operation and quality of work. LJ Perform sterilization surgery and veterinary healthcare services of all shelter animals according to HIHS procedures. lJ Evaluates, creates, and coordinates training and development needs of staff to assure L) L! U LJ J Li J professional standards of performance. Provide professional advice and opinions regarding the development and implementation of educational and enforcement programs. Work with the Executive Director to prepare a budget for animal care needs. Secure equipment and supplies for use in the department while conforming to the approved budget. Supervise the ordering, use, control and recording of drugs and supplies used in the department according to federal, state and HIHS procedures. Perform physical examination, treatment protocol, testimony, and documentation of animal(s)'s condition that are involved in a cruelty investigation for the field services department. Continue to educate oneself concerning veterinary medicine, animal welfare, and staff supervision, and improve or update current procedures as needed according to HIHS policy. Inform the public concerning questions of healthcare, welfare, and condition of animals at HIHS. Conducts oneself in a pleasant, courteous, and professional manner. Treat all animals humanely, properly and with compassion according to HIHS procedure. Food Storage and Feeding Schedules Food is stored in areas that restrict the entry of rodents at the Kailua-Kona and Keaau facilities. In Waimea, the food storage shed has been infiltrated with field mice. Within all 3 shelters, an in -use supply of food is kept in barrels or buckets while the bulk supply is stored in the food storage areas. The majority of food is donated by a local business. Refrigerated storage is available for special diet and medical needs. Shelter Operations 4-12 All adult animals are fed at least once a day, usually in the morning (caged animals are fed after their cage is cleaned). Unused portions of dog food are typically disposed of by mid- day. Within the kennel areas, stainless steel and/or galvanized bowls are used forfood and water. Since multiple dogs are often held within the same run, the Study Team was advised that multiple food bowls are offered to give each dog an opportunity to eat. Stainless steel and/or plastic food and water bowls are provided for cats. Nursing mothers, elderly and infant animals are given special considerations in regards to diet. Puppies and kittens are offered replenished quantities of food (either dry and/or soft), depending upon policy and the Animal Health Technician's recommendation. Food and water containers are replenished daily; containers are also required to be dumped of any existing water and food. The Study Team was told that kennel food containers are disinfected daily; water bowls are rinsed daily and disinfected at least once weekly, or "as needed." Containers provided for caged animals are typically disinfected once the animal vacates the cage. Food and water is replenished directly within the kennel or cage. The agency does offer, by policy, recommendations on the quantity of foods to be provided to animals (the "Dog and Cat Feeding Standards"). Sanitation and Disease Control Written procedures regarding shelter sanitation and disease control are offered within the Policy Manual ("Disinfection Policy", sections 14.21-23 of the HIHS S.O.P. and the "Cleaning/Disinfecting Memo" dated 08/17/99). In addition, the Study Team was also provided a "Animal Health To Do List" which details specific daily cleaning and care tasks (for employees and volunteers). Dogs and puppies are not removed from their kennel while it is cleaned. Current procedures prohibits "an animal to be hosed down either directly or indirectly, except as prescribed treatment, or if a loud yell or noise fails to break-up an altercation between animals, or if it cannot be helped because the dog is a water -biter. However, a water -biter should be removed from its kennel to facilitate cleaning the kennel." Puppies, sick, injured and older dogs are removed from their kennels, when possible. During the on-site visit, the Study Team did not observe any employees removing dogs from kennels prior to cleaning. While workers attempted to keep animals dry during the cleaning process, some do become wet. The kennel cleaning process was described as follows, with slight variations between the 3 facilities: "Kennels are rinsed with water to remove debris; the Parvosol chemical or bleach is sprayed on floors, walls and fencing and allowed 10 -minutes of surface contact time; all chemicals are then rinsed with water." The Parvosol is a quaternary ammonium compound that cleans, deodorizes and .disinfects, and is effective against the canine parvovirus. Chemicals are mixed automatically with water in hose sprayers. Shelter Operations 4-13 Floors and walkways are disinfected daily. Some areas within all 3 facilities are disinfected several times per day. During the on-site study, some kennels were squeegeed, however most were allowed to air-dry, which prolongs the animal's exposure to excess water. Caged animals are removed from their cage prior to cleaning (usually placed in a clean cage). All materials are removed from the cage, then sprayed and wiped with a cleaning agent (Parvosol). The cage is then wiped dry with clean towels or allowed to air- dry and replaced with clean newspaper (cages at the Kailua-Kona are not lined with paper). Fresh litter is offered daily. All food/water bowls and litter pans are sanitized once an animal vacates its cage. Kailua-Mona Cat Area Cleaning is done whenever possible, with most tasks being undertaken both prior to and during those times when the animal holding areas are open to the public. Spot cleaning/watering is performed by workers when time permits. Quality of Personnel Within the animal holding areas, the agency offers Shelter Managers, Humane Officers, Animal Health Technicians, Kennel/Shelter Assistants, and a Staff Veterinarian. As stated in other sections of this report, the Study Team found it unusual that Humane Officers were commonly utilized for shelter duties, to include cleaning, feeding, impounding, adoptions and euthanasia. The Study Team believes that the agency should secure the services of additional shelter personnel to release officers from these responsibilities (this issue is addressed further in Chapter 5, "Field Operations'). The Study Team felt that with the prevailing number of animals impounded by HIHS annually, along with current hours and responsibilities, the agency needs to increase staffing levels to release other workers from shelter obligations. A nationally recognized formula to determine kennel staffing needs appears under "Determining Kennel Staffing Needs. " Work Schedules The Study Team was presented with a kennel work schedule, which appears at the end of Chapter 2, 'Administration." Shelter Operations 4-94 At the time of this study, no kennel positions were vacant. The kennels are staffed seven days a week. In Waimea, both Humane Officers alternate Sunday and Monday cleaning duties and are compensated with 2 hours of overtime each day. Kennel workers and volunteers are typically assigned specific areas to oversee; each worker's job description details unique tasks and responsibilities. Workloads vary during the day for the staff. Early mornings are busy with cleaning prior to public visiting hours. Peak workloads occur when workers are assisting the public with returned or adopted animals, evaluating incoming animals or assisting with euthanasia. Determining Kennel Staffing Needs The Humane Society of the United States has recently developed a formula for determining kennel staffing needs: Indicator Value Formula Value Indicator Incoming Animals 15,400' _ by 365 days = 42 Incoming Animals per Year per Day Incoming Animals 42 x 4 Day Average 168 Animals in Shelter per Day Hold Period = per Day Animals in Shelter 168 x 10 Minutes per 1,680 Number of Per Day Animal' = Minutes Needed Minutes Needed 1,680 _ 60 minutes= 28 Number of Hours Needed Number of Hours 28 _ 3 hours° = 9 Staff Needed Needed per Da Source: The Humane Society of the United States 1. Average total of live dogs and cats received 1996-2000. 2. Since HIHS was unable to provide data regarding the average impound time fordogs and cats, the Study Team will use the national "baseline average" of 4 days (the 72 -hour rule, plus 1 day). Some animals may be held for a much shorter period; however, many animals may be held for a period exceeding the baseline average. 3. This formula is based on a per -animal time of 7 minutes for cleaning and 3 minutes for feeding. 4. These 3 hours are solely for the performance of cleaning and feeding - allow further time in the day to perform routine maintenance such as laundry, dishes, lost and found checks, etc. Based on the above formula, a minimum of 9 staff members is required, each day, solely for performing cleaning and feeding duties (these 9 positions would need to be distributed among the 3 facilities based on that shelter's impounding data). It should be noted that during the reporting period from 1996-2000, the HIHS impounding ratio was 50.9% for cats versus 49.1% for dogs. This is the first time in any NACA evaluation in which cats have exceeded dogs in impounding ratio. Shelter Operations 4-15 Animals Records Management The agency currently does not utilize a commercial software package, agency -wide, to track animal receiving and redemption, adoptions, etc. Instead, impounded animals must be logged on paper (intake forms) upon entering the facility and once adopted, redeemed or euthanised. Currently, the Kailua-Kona and Waimea shelters enter information into a database on animals adopted or redeemed only at the end of each month (using the intake forms and :::4 invoices for that period). The Director of Keaau Cat Isolation Building Operations claims that animals can be traced from the time they are picked up until their final disposition using this system (depending upon the facility, animals are also assigned a cage number, kennel/cage card, metal tag and/or a mylar band). This system also records all pertinent information regarding the animal's impoundment, condition and description. Since there is a central point for records (at each facility), this decreases the risk (and liability) for "losing" animals and impoundment information. The current method is designed to prevent mistakes, but errors sometimes do occur (usually because inaccurate information is entered onto the animal's record or an animal is transferred to another kennel/cage). All information, including the animal's description, condition, circumstances of impoundment and ownership status are recorded at the time of impoundment. The Study Team felt that the current system of animal inventory was somewhat reliable, however the agency should purchase a professional animal tracking software package when funds become available. Such software would be able to eliminate backlogs and data duplications, which now occurs. In addition, these software programs would be able to encompass all work areas, thus enhancing data gathering efforts. HIHS should also develop uniform animal tracking procedures for all 3 shelters. The Study Team observed varying tracking methods among the facilities (ie: the Keaau facility placed numbered metal identification tags on incoming dogs, while the Kailua-Kona and Waimea shelters did not). Tracking methods should always be consistent and reliable to minimize errors and prevent the agency from being placed in an uncomfortable (liability) situation. Animal Impoundment Animals usually enter the facility in one of three ways: Dropped off by the public, abandoned in after -hour "holding pens" (also known as "drop boxes"), or impounded by HIHS. The majority of the animals impounded are dogs and cats, however other animals have also been confined (livestock and exotic). Wild animals are generally not handled by HIHS (typically only injured animals). Shelter Operations 4-16 Impounded stray dogs are held for a minimum of 48 hours, excluding those days in which the impounding shelter is closed. Impounded stray cats are not legally required to be held for any minimum period of time. Owned dogs and cats are typically held a minimum of 7 days, then placed up for adoption or destroyed if unclaimed (current policy requires owner notification, by phone or letter). The Study Team felt that the average holding time for stray dogs and cats is unusually short and is not consistent with other Animal Control agencies. In the Study Team's experience, holding times are usually based upon the 72 -Hour Rule", in which impounded animals are held for a minimum of 72 hours, and can be adopted or euthanised on the 4th day of impound. This is the first time in any NACA evaluation in which local or state law did not require a holding period for Waimea Cat Area cats. In several states, cats and dogs are considered "property" and retain some monetary and emotional value for the pet owner. The Study Team would caution HIHS on its continued practice of immediately euthanizing some incoming cats (for temperament, lack of space, etc.). Since HIHS can be considered a "quasi -public" organization when acting in an official capacity, the agency is subject to the same constitutional requirements as any other government agency and thus must respect a pet owner's due process rights. As with any lost piece of property recovered by an official government agency, such property must be held for any potential claim by its rightful owner. Although local or state laws do not require the cat holding period, the Study Team fears that any challenge by citizens of the current policy may place HIHS in an uncomfortable (liability) position. In short, the Study Team would recommend the same holding period for both dogs and cats, regardless of current legal requirements. The date of adoption availability is the day after the legal impound time expires, which is dependant upon the type of animal (since the holding periods for dogs and cats are not the same). HMS also accepts animals that are no longer wanted by their owners. Unclaimed, owned animals are held as long as there is space available. The maximum length of time an animal may stay at the shelter varies. The length of the stay is dependant upon space available at the shelter, the temperament and health of the animal, and interest expressed by the public. Health assessments begin when an animal is first handled by field and kennel workers. A "quick" physical inspection is given to all incoming animals. If the staff recognizes a problem, the Animal Health Technician, Shelter Manager or Staff Veterinarian provides further examination. Special instruction is given to workers regarding disease recognition. Shelter Operations 4-97 Mostly, the staff just learns on the job. In addition, area veterinarians are also available for the emergency treatment of impounded animals, whenever necessary. The following chart details the impounding process: Impounded Dogs Impounded Cats Held in isolation for 48 hours or euthanised Held in isolation for 24-48 hours or because of temperament (feral), illness, or euthanised because of temperament injury. Incoming dogs sprayed for ticks and (feral), illness, injury or a lack of space. fleas. After 48 hours, dog is examined again for After 24-48 hours, cat is examined again health and temperament. If approved, the for health and temperament. If approved, animal is moved to the adoption area the animal is moved to the adoption area (space dependant). The dog is then (space dependant). The cat is then dewormed and receives a FrontLine tick dewormed and receives a Frontline tick and flea application. Puppies under 1 year and flea application (if necessary). All cats of age receive a DHLPP vaccination. receive a FDRCP vaccination. ------------------ Source: HIHS When an owner does relinquish a pet to be placed up for adoption, he or she is informed that there is no guarantee that the animal will be adopted (surrender policy information sheet). Owners are asked to provide a "profile" on their animal before surrendering it (owner surrender information sheet). This profile includes information about the history of the animal (age, name, health, personality and temperament) that relate to its adoptability. A signed release is required for surrendered animals, however proof of identification (driver's license or social security card) is not a matter of policy. Relinquished animals are immediately evaluated for their adoptability and can be adopted or euthanised at any time (those animals deemed adoptable are held for the 48-hour isolation period). When some person desires to relinquish, adopt or reclaim a pet, their process begins in the customer service area. Incoming animals are transported to their assigned kennel or cage, after processing, with the use of a leash, catch-all pole or carrier. Depending upon the facility, animals are also assigned a cage number, kennel/cage card, metal tag and/or a mylar band. An Intake/Release Form is submitted for all animals coming into the shelter. Once the incoming animal record is completed, a cage/kennel card, metal tag and/or mylar tag is generated and placed on the animal or the animal's cage or kennel. Identification numbers are assigned to all incoming animals (preprinted on the Intake/Release Form). All fees are paid in the customer service area whenever any transaction occurs. The following fee schedule is offered by HIHS: Shelter Operations 4-98 Adoption Fees Dogs - $60.00 (includes spay or neuter, DHLPP vaccination (if under 1 year of age), worming, County license, microchip, collar and leash). Senior citizens may adopt a dog for only $45.00. Cats - $50.00 (includes spay or neuter, the FDRCP vaccination, worming, identification tag, microchip, collar and pet carrier. Senior citizens may adopt a cat for only $40.00. Other Animals - $1.00 to $15.00. Impound Fees 1St Offense and thereafter - $10.00 Boarding Fees - $5.00 per day. Service (Fees Stray dog pickup - No charge. Trapped cat pickup - $5.00. Surrendered animal pickup - $15.00. Surrendered animal drop-off - $10.00 suggested donation. Dog/cat euthanasia - $25.00. Cat disposal - $5.00. Dog disposal - $12.50. Cat trap - $25.00 deposit. Dog trap - $50.00 deposit. License Fees Dogs - $2.10 (altered)/$6.10 (unaltered). Cat Identification Tag - $2.00. The Study Team thought that it was unusual for the agency not to charge an escalating impounding fee for repeat offenders. Most Animal Control/Care agencies charge an escalating fee, in addition to the boarding fee. The addition of such fees would augment compliance for leash laws, punish habitual offenders, reduce the need for court appearances (as a citation would not need to be issued if the animal was already in custody) and increase revenue for the program (and thus offset program costs). The Study Team does not agree with the suggestion of issuing a citation for every redeemed at -large dog. Currently, citation penalties are not retained by the County of Hawaii. Those fees are collected by the State of Hawaii and are not returned to the local level to offset program costs. Thus, the escalating impound fee is a more favorable alternative. In those instances in which an owner refuses to claim his/her pet based on the severity of the impound fee, that individual should be issued a citation for abandoning the animal instead, which generally carries a stiffer penalty. During the impounding process, employees are required to scan for the presence of a microchip and search for any tattoos. Any person reclaiming an animal will complete paperwork and pay the appropriate fees in the customer service area, then workers will retrieve the animal from the kennel or cage. Positive identification is not required from owners for any animal claimed. Adopted or redeemed animals are not required to obtain a rabies vaccination upon leaving the facility. After the animal's legal impoundment time has expired, the animal is then placed up for adoption oreuthanised. The agency currently offers a policy (memorandum dated 02/15/01 entitled "Holding Period") which states that "adoptable animals will be held as long as space allows and the animal remains physically and emotionally healthy." Shelter Operations 4-19 The Shelter Manager is responsible for making the final determination on the animal's disposition once ownership reverts to HIHS. Adoption HIHS offers an adoption program. Once the animal's legal impoundment time has expired, workers assess the animal's health and temperament (space is also a consideration); if approved, the animal is offered for adoption. All animals are adopted on a "first-come, first - serve" basis. Most dogs or cats found within the shelter may be adopted if unclaimed. The agency offers the following adoption policy (HIHS S.O.P. 14.31).- "The 4.31): "The Policy of the Humane Society is to seek quality homes, not merely quantity. The Humane Society reserves the right to refuse adoption of its animals to any individual it feels unsuitable, and in being selective as to which animals will be put up for adoption and which ones are available for adoption." (End of policy summary) Specific adoption procedures are also offered in a memorandum, dated 02/29/00, entitled "Adoption Kennel Procedures": "In order for an animal to go from our isolation kennels/cages to our adoption areas, they must first pass a health and behavioral check. The check includes the following: U Evaluating the animal's general health. L) Discovering obvious and hidden behavioral problems. 0 Determining the overall adoptability of the animal. Ij Administering deworming medications, vaccinations, and flea/tick treatment. Due to the fact that this is a detailed process, this procedure should be carried out only by Humane Officers and/or the Animal Health Technicians. Therefore, it is important that animals in isolation not be moved to the adoption areas unless done so by a Humane Officer or Animal Health Technician." (End of policy description) Because of staff limitations, perspective adopters receive limited counseling prior to adopting an animal. To be considered for pet ownership, an adopter must: [a Be 18 years of age or older. U Have identification (such as a driver's license) showing a current address. U Have the knowledge and consent of a landlord and all household members. J Be able and willing to spend the time and money necessary to provide training, medical treatment and proper care for a pet. Perspective owners complete and submit an adoption application. HIHS typically does not check perspective adopters for previous offenses against animal ordinances, outstanding citations or previous cruelty/neglect convictions (the lack of a shared database between all 3 facilities hinders this process). Applications must be approved by a Humane Officer Shelter Operations 4-20 or the Shelter Manager. A potential owner may be disqualified for the following reasons: ❑ Persons having an extensive history of losing, giving away, selling or having animals injured or killed by moving vehicles. Q Persons who will intentionally put the animal in a situation which may cause injury or death. U Persons who mislead or fail to provide accurate information on the adoption applications. U Persons who have lost an animal and failed to report the animal lost, or made no efforts to find it. Sterilization of all adopted dogs and cats is mandatory and is performed before the new owner receives custody of the animal. Surgeries are performed in-house by the staff veterinarian or a participating veterinarian clinic. Adopted animals are transported to offsite clinics by Humane Officers. Participating veterinarians are reimbursed for the spay/neuter surgery by HIHS (at a generously reduced cost). Currently, 16 veterinary clinics participate in the HIHS adoption program. The agency accepts early spay/neuter procedures, however special considerations are afforded to infant animals or those animals that experience medical conditions at the time of adoption. Not all veterinary clinics participate in early spay/neuter procedures. Any adopted animal may be returned to the shelter within 7 days, for medical reasons, for a refund of the adoption fee. Adopted animals receive "minimum" vaccinations and physical examinations prior to leaving the shelter. Thus, the new pet owner is required to transport the adopted animal to a veterinarian for a full examination within 7 days of adoption. License purchases are required for any adoption. The new pet owner is not required to vaccinate his/her animal for rabies once the animal arrives at the veterinarian. Previous bite animals (evaluated on a case-by-case basis), wolf hybrids and aggressive animals are not placed up for adoption. There are no other breed specific denials. All animals are evaluated by health and temperament. The history of an animal (if known) is taken into consideration when evaluating an animal for adoption. The Animal Health Technicians or Humane Officers are ultimately responsible for determining an animal's adoptability. During the 1999-2000 Fiscal Year reporting period, the agency had a 11 % dog adoption rate and a 9% cat adoption rate. Adoption records are kept via the computer and hardcopy. Currently, the Kailua-Kona and Waimea shelters enter information into a database on -animals adopted or redeemed only at the end of -each month (using the intake forms and invoices for that period). A report is then generated, summarizing the totals for that month. Shelter Operations 4-21 To enhance its current adoption program, HIHS also participates in the "Neighbor Island Puppy and Kitten Adoption Program," which enables HIHS to exchange surplus puppies and kittens with the Hawaiian Humane Society on Oahu. Once selected animals successfully complete a physical exam and receive all necessary vaccinations, they are shipped (via Aloha Airlines) to the Hawaiian Humane Society for adoption. HIHS also offers a volunteer foster care program, which strives to "provide temporary Keaau Cattery/Recovery/Surgery Area care for infant or sick animals with treatable health problems or any other animal to be determined by the shelter manager, so that they may be available for adoption." The Study Team was not presented with any information regarding the level of volunteer participation involved with this program. HIHS and the Animal Rescue Coalition of Hawaii has entered into a fostering partnership "to extend the lives of healthy, adoptable dogs or cats that have been at the shelter for their allotted time and would otherwise be euthanised for lack of a home, and help to find them homes." A.R.C.H. has agreed to take full responsibility of these animals while in their care, to include any necessary medical care, spaying and neutering, and advertising regarding adoption placement. The Spay/Neuter CAP Program The Spay/Neuter Community Assistance Program is a project sponsored by the County of Hawaii, HIHS and 16 participating veterinary clinics. The purpose of the program is to make available low-cost spay/neuter certificates to citizens who might not otherwise afford to have their dog or cat spayed or neutered. For the 2000-2001 Fiscal Year, the County of Hawaii contributed $35,000 for this program. Additional monies ($10,000 for the current fiscal year), generated through HIHS fund- raising events and adoption fees, also supplement the spay/neuter program. Area veterinarians also generously subsidize the program by offering reduced surgery fees and donate additional spay/neuter surgeries in conjunction with special promotions, such as Spay Day USA. Typically, 3 "sales" are held annually, in the months of October, February and June. Households are limited to purchasing 2 spay/neuter certificates at the following cost: a Male cat - $25.00 L-1 Male dog - $45.00 ❑ Female cat - $35.00 J Female dog - $50.00 Shelter Operations 4-22 The pet owner is also required to purchase a County dog license at the time of request. A $1.00 processing fee, per application, is retained by HIHS. A HIHS volunteer oversees the Spay/Neuter Community Assistance Program, utilizing a Microsoft Excel and Access database to track certificates. In addition to the annual promotions, each HIHS Shelter Manager is allowed to issue 10 spay/neuter certificates per month, based on need and circumstance. This is the first time in any NACA evaluation in which public funds have been utilized for the spaying and neutering of privately -owned animals. The Study Team commends the efforts of local government, HIHS, veterinarians and the citizens of Hawaii County. The following chart details the success of the Spay/Neuter CAP Program, as of 06/12/01: Indicator June 2000 October 2000 February 2001 Total Certificates Paid 694 $41,071 602 $35,763 928 $50,051 Total Unpaid Certificates 45 $2,354 62 $3,500 317 $16,307 Total Certificates Sold 739 1 $43,425 i 664 $39,263 1245 $66,358 Source: HIHS Euthanasia HIHS uses the controlled drug "Fatal Plus" for euthanasia purposes. Fatal Plus, which is produced by Vortech Pharmaceuticals in Dearborn, Michigan, contains pentobarbital sodium as the active ingredient. The solution itself is dyed blue and labeled for easy identification or isolation. The drug's action is described in the manufacturer's product brochure as follows: "Fatal Plus produces classic euthanasia by sequentially depressing the cerebral cortex, the lungs and the heart. Action on target organs gives humane euthanasia of unparalleled speed, effectiveness and specificity. Instant unconsciousness is induced with simultaneous collapse of the animal. Deep pentobarbital anesthesia ensues with blood pressure fall, stoppage of breathing and cerebral death. Cardiac function stops, quickly and irreversibly." Depending on the animal's behavior, some aggressive animals are sedated (xylazine or a ketamine -xylazine hydrochloride mixture) prior to euthanasia for personnel safety and to keep the animal comfortable. Use of drugs for euthanasia is well-documented. Amounts expended are tracked via the Sodium Pentobarbital and Ketamine Log. Workers monitor the intake number, species, date of euthanasia, reason for euthanasia, dosage, and name of the technician. The Staff Veterinarian is accountable for confirming the accuracy of all euthanasia and tranquilizing drug records. Shelter Operations 4-23 The bulk of controlled euthanasia drugs and tranquilizing agents are stored within the 3 shelters as follows: U Kailua-Kona - Bulk supply kept in a locked safe located within a locked closet located in the Executive Director's office (unknown if this safe is bolted to the floor). U Keaau - Bulk supply kept in a locked safe located within the Director of Operations/Shelter Manager's office (this safe is fixed to the floor). An in -use supply is kept within a locked "ammunition box" located in the main office; the box is also chained to a file cabinet via a heavy chain and padlocks. L! Waimea - Bulk supply kept in a locked safe located within a locked closet (it is unknown if this safe is bolted to the floor; numerous materials were observed stacked on the safe at the time of the on-site visit). An in -use supply is kept within a locked "ammunition box" located in the main office; the box is also chained to a file cabinet via a heavy chain and padlocks. The Study Team was advised that there are no state laws which restricts the methods of euthanasia. The agency offers written policies within the S.O.P. (Section 15.01) and written memorandums (dated 05/20/99, entitled "Revision to Euthanasia Policy" and dated 10/18/99, entitled "Euthanasia Procedures"). Section 15.01 offers an introduction to the agency's policy on euthanasia: The goal of the Humane Society is to prevent animal suffering. Although suffering is often thought of or viewed as physical pain, an animal knows of other suffering as well, such as that which comes from not having a home to call its own and no one to offer lifelong attention to its needs. Shelters can only provide so much respite for those that are cast aside or unwanted. They can offer the possibility of a new life to only a few. The others must receive a dignified end to their existence and be humanely euthanised. For to do otherwise, to keep them in a 'shelter environment' the rest of their lives, is not economically or physically possible. To 'set them all free' would be the cruelest and most irresponsible things one could do to domesticated pet animals. Stray or abandoned animals have a greater chance of dying of starvation or disease, or killed in traffic, or being shot or poisoned or pitted against one another in mortal combat, or used for an experimental purpose. Therefore, in the absence of a quality existence for unwanted pets, the volume of surplus pets unfortunately dictates an excess for which there are no homes and, in many instances, no shelter space available. The Humane Society's policy is to give these animals a dignified, painless death rather than have them suffer in an unwanted and/or dangerous existence." (End of policy description) The agency requires that only certified workers perform these tasks. On most occasions, at least 2 workers are involved in the euthanasia process; one worker performs the procedure, while the other employee assists with holding/calming the animal. The Study Team was told that the agency currently rotates workers involved in this process. Shelter Operations 4-24 All animals are euthanised by lethal injection. When using lethal injection, intravenous (IV) or intraperitoneal (IP) injections are considered to be the primary routes when administering Fatal Plus. The agency follows protocol listed in the "Euthanasia Guide for Animal Shelters" which is highly regarded in Animal Control/Care work. This guide describes the routes of administering drugs and the methods of delivery in conjunction with those recommended by the American Veterinary Medical Association. Within HIHS, intracardiac (IC) injections are never used on alert dogs and cats (typically a follow-up injection). The AVMA, MSUS and NA CA all agree that intra cardiac injections should not be performed on alert animals. Animals are taken to the euthanasia room via a catch -pole, carrier, leash or carried (some aggressive animals are sedated within their kennel or cage before being transported to the euthanasia room). In Waimea, cats and puppies held within the euthanasia room are covered with a blanket or towel to minimize their exposure to the euthanasia process. However, these animals are still exposed to the audible reactions of euthanised dogs and cats. The Study Team did have an opportunity to observe the handling and euthanasia methods at all 3 facilities during the on-site study. All animals were treated with compassion and dignity both before and after death. Based on this limited analysis, current methods do not cause excessive stress, apprehension or fear. Procedures and security checks are necessary to avoid errors in selection of animals for euthanasia, and the agency does have an error -checking method currently in place. Animals are identified by the intake record, cage/kennel card, metal tag, mylar band and physical description. The Shelter Manager (or other on-site supervisor) approves all animals which are scheduled for euthanasia. Animals are scanned for a microchip during this process. Death is verified by "lack of heartbeat" (no stethoscope is used) and/or eye/physical reactions. In some instances, the intracardiac technique is employed to check for cardiac standstill following IV or IP euthanasia. All these methods are consistent with procedures used to support that death had occurred. Death is verified in all instances. Needles are disposed of in a safe and proper manner. Scales (floor and "baby") and muzzles are also available. However, not all of this equipment is offered at each facility. Grooming clippers were not observed at any of the 3 facilities. Each facility does have a euthanasia room. Oddly enough, none of the shelters offer a euthanasia table. Instead, animals are euthanised primarily on the floor. Except for the Waimea facility, the euthanasia rooms are large enough to comfortably accommodate animals and staff. The lighting in these rooms appear to be adequate. Carcasses are bagged, then placed directly in a freezer or on a truck for immediate transfer to a landfill. The Study Team was told that euthanasia is performed at any time that there is a need for more space. Shelter Operations 4-25 Training New employees are offered an orientation before beginning work. After hiring, personnel are trained "on the job," usually being placed with designated training staff (senior employees) and/or rotated among several workers. The length of time varies among employees, depending on previous experience and work area. Workers are designated as "in training" for their entire 6 -month probationary period before officially being discharged from the training program. The HIHS Employee Manual describes the probationary period as "an orientation period and is designed to introduce new employees to the HIHS, its policies, procedures and staff." Specific certifications and licenses are required forcertain HIHS positions (anyone involved in the euthanasia process, the Staff Veterinarian, and Humane Officers). No worker is allowed to participate in the euthanasia process unless certified. The euthanasia training program was described as follows: L) The recruit spends a minimum of 2 months observing other certified workers. U The recruit receives a minimum of 8 hours of in-house training, utilizing the protocol listed in the "Euthanasia Guide for Animal Shelters." The Staff Veterinarian provides this instruction. Once the recruit displays an acceptable level of proficiency, the Staff Veterinarian will "certify" the worker for euthanasia. The Study Team was advised that all current HIHS staff members involved in the process are certified in euthanasia. The agency does not require the annual recertification of these employees. Instead, the Staff Veterinarian or a community veterinarian will periodically observe each worker engaged in the process. Recommendations 4.01 The County of Hawaii should explore the possibility of expanding and renovating its current animal sheltering facility in Kailua-Kona within the very near future. Rating: 1 4.02 HIHS should proceed with plans to expand and improve the Waimea animal sheltering facility as soon as possible. Rating: 1 4.03 Eliminate any clutter inside or outside the facility. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.04 HIHS should evaluate outside lighting (at all 3 facilities) in. the public and employee parking lots and offer improvements, -if necessary for safety purposes. Rating: 3 4.05 Increase the number of parking spaces offered to the public. (Kailua-Kona and Keaau) Rating: 3 Shelter Operations 4-26 4.06 All areas of the facility should be upgraded to provide increased access to disabled persons. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.07 Repaint areas within the shelter as required. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.08 Repair and reseal all animal holding enclosures where needed. Any deteriorated fencing, gates and framework should be fixed or replaced. Tops should be provided for all kennels. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.09 Repair or replace perimeter fencing as required. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.10 A television with a VCR should be provided in the customer service area to play educational tapes for customers waiting for service. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.11 The customer service area should be expanded and/or redesigned; workstations should also be installed to increase the comfort of those visitors completing paperwork. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.12 Identify and remove all hazards to visitors, employees and animals. (Kailua-Kona, Keaau and Waimea) Rating. 1 4.13 All equipment/supplies need to be stored properly, out of the reach and view of visitors. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.14 Existing equipment should be inventoried and a determination made on its usefulness. Unneeded items should be disposed of properly. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.15 Adult cats and kittens should be housed in a separate area away from dogs. (Kailua- Kona) Rating: 1 4.16 HIHS should ensure that all kennels are separated by a solid partition of either steel or concrete, both inside and out. Such partitions must be a minimum of 4 feet in height, with an additional 2 feet of fencing on top of the wall. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.17 The agency should consider expanding its current isolation areas in an attempt to segregate: sick, quarantined and injured animals from the general shelter population. Whenever possible, puppies should be kept isolated from the adult dog population. Isolated cats should also be housed in areas away from dogs. (Kailua-Kona, Keaau and Waimea) Rating: 1 Shelter Operations 4-27 4.18 Plastic or fiberglass resting benches should be provided for all kennels in an effort to make dogs more comfortable. (Kailua-Kona, Keaau and Waimea) Rating: 2 4.19 All kennels and cages should be secured with padlocks to prohibit public access. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.20 It is not desirable for multiple animals to be housed together in the same kennel/cage, however the Study Team recognizes the fact that the current facilities are not adequate to handle the number of animals that the agency impounds. Any expansion may be cost prohibitive for the agency (actual costs should be explored and considered for capital outlay or grant funding). (Kailua-Kona, Keaau and Waimea) Rating. 1 4.21 Dogs and cats should not be euthanised in plain sight or sound of other live animals. (Waimea) Rating: 3 4.22 Improved lighting should be offered throughout all animal holding areas (Kailua- Kona and Waimea). Rating: 3 4.23 Increased supervision should be required within the animal holding areas in an attempt to increase (and guarantee) the level of care afforded to all animals. A certified veterinary technician should be hired to improve oversight in these areas. (Waimea) Rating: 1 4.24 A vermin -proof area should be identified for food storage. (Waimea) Rating. 1 4.25 All dogs should be removed from their kennel prior to cleaning. This prevents animals from being exposed to excessive amounts of chemicals and water. These animals may be placed in a temporary kennel or cage during the cleaning process. It should be recognized that the physical removal or transferring of animals from one cage to another will increase staff cleaning time. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.26 All kennels should be free of standing water and as dry as possible before animals are returned to them. Kennel floors should be squeegeed dry. Floor fans may also be used to expedite the drying process. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.27 All food and water containers should be disinfected daily. Rating: 1 4.28 Based on the Humane Society of the United States' kennel staffing formula, the agency should offer no less than 9 kennel workers (distributed among the 3 facilities based on that shelter's impounding data) for the purpose of cleaning and feeding. Other work responsibilities (such as assisting the public, evaluating and vaccinating animals and recording impounded animals) will increase the agency's need for more kennel employees. (Kaiilua-Kona, Keaau and Waimea) Rating: 1 Shelter Operations 4-28 4.29 The agency should purchase an animal tracking software program which would capture vital data regarding impounded and reclaimed/adopted animals. This software should also provide knowledge of prior offenses and name queries. Computer and printer upgrades should be offered in all work areas. Additional computer training should be offered to those employees who require it. Workers should be trained in computer usage and software. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.30 HIHS should develop uniform animal tracking procedures for all 3 shelters. The Study Team observed varying tracking methods among the facilities (ie: the Keaau facility placed numbered metal identification tags on incoming dogs, while the Kailua-Kona and Waimea shelters did not). Tracking methods should always be consistent and reliable to minimize errors and prevent the agency from being placed in an uncomfortable (liability) situation. In addition, the agency should perform a morning and evening "headcount" of impounded animals to reinforce inventory procedures. Rating: 1 4.31 The County of Hawaii should reevaluate its animal ordinances. The Study Team felt that the minimum animal holding times for stray dogs and cats were unusually short and not consistent with other Animal Control agencies. Rating: 2 4.32 Although not legally required, HIHS should reevaluate its animal holding period for cats. The Study Team felt that the minimum holding time for cats was unusually short, and is not consistent with other Animal Control/Care agencies. In addition, the Study Team would recommend the same holding period for both dogs and cats. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.33 Proper identification should be obtained from all citizens/owners during the surrender, reclaim and adoption process. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.34 The agency should introduce an impoundment fee schedule, charging escalating fees for repeat offenders. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.35 Potential adopters should undergo a criminal background check (if not allowed by law, they then should be screened for any previous animal/abuse neglect conviction). (Kailua-Kona, Keaau and Waimea) Rating: 1 4.36 HIHS should utilize volunteers or hire additional personnel to council prospective animal adopters. (Kailua-Kona, Keaau and Waimea) Rating. 2 4.37 If not already provided, all drug supply safes should be bolted to the floor to prevent theft. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.38 A euthanasia table, scales (to help determine the animal's weight for proper injection dosages), muzzles, grooming clippers and a stethoscope should be purchased for each sheltering facility.JKailua-Kona, Keaau and Waimea) Rating: 3 Shelter Operations 4-29 4.39 The Waimea euthanasia room should be expanded to better accommodate staff members and animals. Rating:3 Shelter Operations 4-30 JH�LTtkSk,�'Jt—SSP"IE�IBER 1`J9t THE GREAT DROP B0Y DEB,47E.- RE AFTF.R-HO1u,'HS `"DEPOSIT BOXES " REALLY 1V ' . AR '?. By Robin Weirauch, Program Coordinator, HSUS Great Lakes Regional Office YCars a, -o, after-hours yisiturs to one old shelter in the Southeast found 111%0 separaLc doors built into a wall of the facility. One was labeled "cats" and the other %vas labeled "dogs." The yisi- tors would open the appropriate door, deposit their animal on the ledge in- side. clwt the door, and ,valk away cow,InLed thCy had done the right thing. What the unsuspccLiu11 visitors did not kno,.y was that both doors opened into the same dark enclosure. Today, many shelters after-hours animal drop-off an:tngernents still leave much to be desired, and even well-cicslgnCd arran`cments do not come without conno-ersv. Indeed, among shelter professionals, the sub- ject of after-hours drop-off bo\cs can quickly lead to a highly charged, po- dium -pounding debate. That's because, as with many worthwhile issues, there is no singlc absolutely right or wrong position. Instead, there are pros and cons to each side, and an open presentation of Lilt: issue can help shelters make better decisions and provisions for the ani- mals and people they serve. Two things are not debatable, how ever. First, if a shelter offers drop-off provisions to the public, such provi- sions must be humane, safe, and care- fully planned. Second, if a shelter does nut offer drop-off provisions to the public, the shelter must nonetheless recognize and address what can and does happen to animals after the shel- ter closes its doors for the night. "The ideal for every shelter is to have someone on hand at the facility at all hours who can both accept animals and coordinate emergence services," says Kenneth White. vice president for If'a shelter offers drop-off boxes, they must protect both animals and people. Solid construction, a secure environment, and clear instructions for users are essential for safety and compliance. companion animals and field services for The HSUS. "Given limited re- sources, after-hours deposit boxes may be an alternative, but they must be designed and managed with the best interests of both animals and people in mini -l." Issues of Principle Why does it matter whether animals are received in person or through a night -deposit box' Many opposed to night drop-off boxes base their feelings on principle. Animals should not be treated like mere "batik deposits." they sav, and deserve better consideration. `1 -hey also point out Lha_ the deposit method of animal receiving means the shelter will lack credible and sufficient background informaLion for a large proportion of surrendered animals (see sidebar on page 5). In addition, they say, the result is always a higher pro- portion of animals who must be Con- sidered strays. Because of required holding periods, that can translate into problems managing kennel and cage spate. Proponents of atter-hours drop-off provisions, however, stress that while many people will wait until the morn- ing in the absence of nighttime provi- sions. some will nut. They argue that being safe In a cage is far beRCC than being dumped along the road or tied to the shelter's doorknob. They agree that it can be stressful for an animal to be left isolated in a strange place with - Out Immediate cafe from a human, but argue that the potential alternatives are far worse. "While It Would be Ince to believe JHELItRSLrti'S�—SEP'lE\1L��R N9•4 rlsus al �M1111:111pliq Drop-off boxes are creared with ,good intentions, But substandard arrangements— such as outdoor boxes with chain-link doors put rhe very annuals they're intended to safeguard in jeopardy. that all people would be smart, caring, or patient enough to bring a stray or unwanted animal to the shelter during regular business hours," says While, that of course Is nor a rcahsttc expec- tation. In the real world, there will always be people who refuse to slake any personal contact with their local shelter." In fact, many people are inca- pable ofdealing with stray animals— or even their Own when thtlhgs go "V1,0110 --and could jeopardize them- selves, others, and the animals if they kept them until the shelter opened. Every shelter worker has a tale or two that illuscrates the problems people sometimes have in bringing animals to the shelter. Some. are tragic, some are humorous, bur all are strong; reminders that human nature is pre- dictably unpredictable. Humans de- mand convenience, but they also need guidance in such matters as surrender- ing an unwanted per or bringing In a stray animal. Shelters without around- the-clock staffing must therefore reconcile two conflicting demands: the convenience of after-hours deposit on the one hand, and the humane and safe treatment of animals on shelter property on the other. The Price of Convenience Whichever side of the debate one chooses, the situation is the sante: Shelters with night-deposlt provisions invariably report that a significant percentage of their animals are received after hours, while shelters without these provisions often experience "doorstep deposits." The fact chat a noticeable percentage of aninlals re- ceived by the shelter arrives at the facil- ity during the hours its doors are closed --regardless of what provisions are made—raises many questions: • Are there that many people who simply cannot make it to the shelter during business hours? Are the shelter's hours insufficient or inconvenient? • Does the community need extended hours for animal control services to pick up stray or injured animals? • Are people avoiding the shelter because they fear that shelter personnel will judge them negatively or even scorn thein? • Are people avoiding the shelter because they don't want to pay a sur- render fee or want to avoid being asked for a donation at the time of surren- der? Could the tees be creating more problems than benefits for the shelter? • Does the public understand that the shelter would prefer to receive the animals in person, to get more infor- mation about the animals and attend to their needs immediately? • Is it possible that a carefully crafted public education program could re- duce the number of animals left both during and after hours? 24 Hours allay, 365 Days a Year Answers to such gtlCStloiis arc cer- tainly hard to conte by, but shelters can count on the following factors when deciding how to handle the issue 424 -hour coverage: • People will probably leave animals outside the shelter from time to time: whether or not there is a formal after- hours deposit facility. • if the shelter provides any form of caging, housing, or confinelneut meth- ods outside the shelter during off- tservice hours, they will be used by the public. And some people will still leave aninlals outside of those facilities from time to time. • A substandard after-hours facility will convey a careless attitude about rhe shelter, increase rhe agency's liabil- ity, and send a negative message to the public. Indeed, anything less than 24- hour service may contribute to that message, no matter what economic realities dictate. • A carefully planned night-deposir arrangement can decrease risks. SNEL I ER SLASL- SEPTEMBER 199,, J • Once night drop -oft provisions have been implenlented and the public has become accustomed to then,,'it's al- most inlp4sible for the shelter to take them away without prW Icling surae Jill;.:' turn of 24-ho,ur coverage. Ultinlait-ly, the public 1, i>_t be pro- vided witll.. sorne form of asp 3stance when the shelter is closed. Many shel- ters Coninionly station a swEf member at the shelter after lours, have some- one 011 CU -1:,1 to respond to einergency situ,}tiuus:. or 111clulit an answering nlai_htne message `.Jt-th Instructions for after-hou'r's heip. Even If %[letter has night drop -oft boKtz,, addi,ion'al provi- sions should be in place to handle after-hours emergencies iri,'UIVIIIg aui- nlals; soint shelters, for instance, have cooperative einergenCy-rescLie pro- granis wild) local veterinary clinics. Finally, ;-.!,clters should strive to nlini- rniz.ce after-hours surrenders through public. education. Ensurin Animal and I-Iunlan Safety Shelters that decide to install night drop-off boxes nlust"ensure that then mamae inert properly. 0 -le wav to plat; for -A workable deposit system is to think through :the possible eolise- qucnces of variou*� arrangc.nlentS. For ins: -ante, can child get into the shel- ter by shiunllying through one of rhe drip - oO box openings? \X'ould an anima' tver be placed in )coparcl by being le', unattended in a deposit box' Fur example, would a well --meaning individual be able to put a"n injured auirnal in a box without I-Zalizing he or shC could call an emerIerICY number? The consequences or poorly de- stgned deposit system care be serious. Not too lung ago, for exanlplc, a county, dog inipoundment facility in Ohlu provided ettlzeIIS :VIth a ConvC- nient place to drop off unwanted pets after hours. It consisted of nothing AFTER-HOURS DEPOSIT BOX -ES: PRO 4AD COA Drop boxes are necessaryas a public conve- nience. I f the box isn't there, animalswill be aban- doned.. A properly designed night -deposit area poses less risk to stray orunwanted animals than the dangers of abandonment. It's not easy to change human behavior. The animal's safety is more important than trying to force people to he more respon- sible. People rescuing roaming animals need a safe place to take them when the shelter is closed. Law enforcement officers are morelikely to help animals if,theyhave a place to take them' Night drop-off provisions remove any ex- cuses people- might have for abandoning animals; and thus may help the prosecu- tion of abandonment cases. ivlany arum als picked up as strays; were. actually, abandoned by their. owners'.IX-IS costly ro keep these a3iimai as strays • ;for the required holding period. i I ging night deposits may decrease abandonment ,and the costs associated with it. Night -deposit boxes can be used, for other purposes, such as "baidng'.the' enclosures to trap feral cats, secur,nn:v, arunl4swho become fractious in ifle shelter's parking lot, or holding animals awhile kennels and cages are being cleaned during the day. HEL7ERSL-,V)E �EIIITNIBER 199+ h more than a shoulder -high "chute"— intended for both cats and small dogs—and two iron chains for fasten- ing large dogs outside the building. For many years, residents of a neigh- borhood located close to the shelter reported problems with escaped and released animals. One evening, while walking her dog on a leash, a resident was attacked by an escapee from the night drop-off area. The woman's dog was nearly killed, but the woman her- self was physically unharmed thanks to neighbors and family who heard her scream for help. It was only after the incident chat the facility's tneihbors were able to attract the serious accen- tiou of county commissioners. ,mother lc✓lidwestern facility pro- vided a non-locking vrooden door on the outside of the building, which opened into a large, dark metal box on the inside. Atchough a sign warned people chat state law prohibited cats from being sheltered in a county dog Pound, cats were deposited front time to time. Neighborhood children pass- ing by on their way home from school were known to open the deposit box and release the animals to "save them from being killed." Some children managed to climb inside the box, enter the main kennel area, and release ani- mals from chat area as well_ Even young puppies, after being confined in . darkness for several hours, posed a serious threat to the shelter employee responsible for removing them. In both examples, shelters failed to protect both animals and people. The first night drop-off box required ani- mals to be shoved through a single Chute, allowing for possibilities such as an animal escaping or incompatible species being piaced in the same enclo- sure. The other box :dlowed children to crawl into the drop box to release animals, thus putting children in dan- REC.'OtIVE_1IATIOti-S FOR H(_III VE _VIGHT-DEPOSIT E.��GL05(,RL,S s COiV---- A ` O. Use outside doors chat lock automatically and are made of solid, sturdy material --not, for example, a chain-link cage door or mesh screening. Use enclosures made of materials that can be cleaned, disinfected, and dried effec- tively. Wood, because of its porous nature, is not acceptable. There must be solid barriers between animals co prevent fight- ing and cross contamination. Provide at (cast one enclosure that will accommodate large animals, and label it accordingly. Make certain that very small animals can't escape from enclosures. Provide phone numbers in case of an emer- gency and make sure someone is available to respond to emergency calls. Provide aclimate-conrrolled environment; the animal should be confined to an i ndoor area, not an outside cage or run. Keep the area outside and around the area well lit. Take steps to prevent people from gaining access to the shelter (such as locking en- trances inside the holding room to prevent access to the rest of the shelter, securing windows, etc.). SHEL / ER .SE.�'SE --SEI' 1 l vIBEK 1994 Contin.ieel from box on previous page, Provide.awriting. area:that is shielded from the weather and well- llumirated. Provide a smooth surface to write upon, a peri (with a tie to prevent theft), and a place to leave the form where it will he preserved. Provide "easy" forms for people to com- plete; prompt them with spaces to describe the animal, to state whether the animalwas found or is being surrendered, etc. Forms should defrnitelystate that depositors who sign them are relinquishing legal owner- ship of the animal. Number the enclosures dearly and ask de- positors to record the number on the form. To encourage honesty, explain on the form (and, perhaps on a sign as well) than the information requested -is for the animates benefit. Situate the night -deposit area so that -it is not; the :first thing visitors see when they approach the shelter yet is easily accessible by car and easy to find. Provide basic instructional signs for the public. Keep them simple! If possible, assign someone to check the night -deposit area each night at a'certain time. When animals are deposited, they ' should enter a climate -controlled indoor area, as shown at left. Animals should never be confined to are outside cage or run. ger of an attack by frightened or vi- cious animals. Both shelters put ani- mals at risk of injury, escape, theft, or abuse by providing substandard ar- rangements for after-hours deposit. Such arrangements send a dangerous message to a public that often Follows the shelter's example. "The bottom line is that it is the shelter's responsibility to provide shel- ter 24 hours a day," says White. "Al- though most shelters set up night drop-off boxes with the best of inten- tions—namely, to safeguard animals from possible abandonment ---rhe physical challenges of night drop-off boxes pose inherent problems. If the budget won't allow for around-thc- cloek staffing and drop-off boxes scan to be the only solution, they must never be designed or operated at the risk of animal safety and comfort. Separate and reasonable sized enclo sures for each animal, self-locking doors, adequate protection from the environment, adequate ventilation, and appropriate construction ----such Factors must be considered the bare necessities." Night -deposit boxes may be appreciated by a public that demands convenience. If they are poorly designed, however, they may endanger animals and send the zurang message to the public. National Anima! 0 control Association THE PROFESSIONALS CHAPTER 5 FIELD OPERATIONS This chapter contains a review of field officer staffing, proposed staffing for the future, shift scheduling and current beat structure. The Study Team spent a total of 24.75 hours observing field personnel and their field working conditions. This time was allocated as follows: U Kailua-Kona - 6 hours.0 Keaau - 12.25 hours. Ll Waimea - 6.50 hours. Staffing Overview The importance of an Animal Control operation to a community is paramount. Whether measured by the number of Animal Control personnel involved, the portion of budget allocated to field services, or the reality that the Animal Control Officer has over 4 times more public contacts than a police officer, the field officer is the mainstay of Animal Control work. The way in which these individuals carry out their duties affects not only the quality of life for animals, but also the citizens' perception of Animal Control. Work Schedules The "f=irst Amendment to the Agreement" between Hawaii County and HIHS, dated July 5, 2001, requires that "shelter facilities will be open to the public as follows (excluding County Holidays): Facility Days of Week Times Kailua-Kona Tuesday, Thursday - Saturday Wednesday 8:00 am - 3:30 pm 8:00 am - 6:00 pm Keaau Monday - Saturday 9:00 am - 5:30 pm Waimea Tuesday - Saturday 12:00 pm - 3:30 pm Source: Department of Finance Oddly enough, the Agreement and the Amendment offers virtually no information on field staffing requirements, such as coverage times. The Study Team assumes that field hours coincide with dispatching hours, which are listed in Chapter 3, "Communications." It should be noted, however, that although a Humane Officer may be on duty during dispatching hours, these employees may be performing tasks not directly related to field work and are unavailable for routine animal -related complaints. As reflected in other areas of this report, the Study Team found it unusual to assign field officers to work in the shelter customer service and kennel areas. Field Operations 5-1 After -hour emergencies (Priority 1 calls) are directly dispatched by a contracted answering service. The "cut -oft" time for routine calls is typically 30 minutes prior to the end of the officer's shift. As phone service continues until each shelter "signs -off," pending routine calls accepted after the "cut-off' time are queued in the system for a later response. Since HIHS does not respond to non-priority calls on those days when routine field service is not offered, some calls are allowed to "hold -over" until the next scheduled service day (or later). Policies defining current service delivery and complaint disposition appearwithin the HIHS S.O.P. One field officer, from each facility, is designated as being "on-call" each evening and on those days in which field service is not offered. Each on-call officer is required to have a HIHS vehicle, badge, citation book and uniform while serving on stand-by status. During these periods, officers respond only to emergency calls meeting the following criteria (as reflected in Policy #26.00, "Emergency Services," of the HIHS S.O.P.): Ll Animals in distress. Critically injured animals or any situation where the health or life of animals is in immediate danger. L) Police request for assistance/service. Person incarcerated with animals in possession. Traffic accidents with animals in possession. Owner deceased - animals need to be removed for safekeeping. L) Vicious animals. Animals attacking people. Animals attacking other animals. Animals interfering with the duty of a police officer. Animals having bitten someone and are running loose, and the whereabouts of the animals are unknown. U Stray livestock. When causing a traffic hazard. Normally, an informal information exchange between field officers takes place before officers enter the field. There is no written policy which directs Humane Officers into the field within any specific time upon the commencement of work. HIHS officers typically begin each day working in the shelter, performing cleaning, animal care, euthanasia and office related tasks. Once in the field, officers usually drop off impounded animals prior to lunch and at the end of their shift. Of course, officers may drop off impounded animals whenever needed (vehicles are at capacity, injured/sick animals, or weather conditions pose a threat to the animal). Workers receive a lunch break (30 minutes) and two 15 -minute breaks. Officers return to their assigned shelter at the end of their shifts to impound animals and/or complete paperwork. Including the informal information exchange, shelter tasks, lunch break and shelter visits, HIHS officers typically spend only 4-5 hours in the field ("on a good day," one officer remarked). Field Operations 5-2 Field Staffing A review of the current roster indicates that the agency has a total of 10 HIHS Officers on staff. This number is misleading, however, as these workers are not specifically dedicated to performing field work. In fact, some workers never venture into the field during the course of their shift, because of their shelter commitments. Field staffing is allocated for each shelter district, as reflected in the following chart: Shelter District Coverage Humane Officers Kailua-Kona North & South Kona, a portion of Kau 3 Keaau North & South Hilo, Puna, a portion of Kau 5 Waimea North & South Kohala, Hamakua 1 2 Source. HIHS Field operations is overseen by each individual Shelter Manager. These worker's duties and responsibilities are offered in Chapter 4, "Shelter Operations." The HIHS Officers are directly responsible for "responding to complaint calls from the public, conducting humane education, act as a liaison between HIHS and the public, and enforcing animal -related state and county laws." Their duties and responsibilities include: ❑ Responsible for all investigations involving infractions of animal related laws and ordinances. Issue citations when appropriate. * Interview witnesses and suspects and complete all required paperwork including complaint logs, citations (if any), written reports and follow through until case is closed. Appear in court in support of prosecution when required. Responsible for the education of the public on issues relative to animal welfare, laws and ordinances. Ll Reports for duty at the hours designated by the Shelter Manager. • Insures that his/her issued equipment is in good condition and be prepared for the assignments of the day. • Keep truck clean, polished and in proper working order at all times. Notify shelter manager of any mechanical or other problems with truck, keep accurate inventory of truck equipment. • Required to be scheduled for on-call emergency service on a rotating basis. ❑ Process all animals brought into shelter from assigned route making sure to scan for microchip, check for tattoos, tag and log animals, complete intake forms. ❑ Responsible for opening shelter and/or locking shelter when assigned. ❑ Responsible for notifying the shelter manager of any major incident which may receive media attention. • Required to know all animal -related state and county laws. Field Operations 5-3 U Performs euthanasia on animals as required and responsible for dispensing proper dosages of euthanasia drug and tranquilizing: drugs that may be used. Required to update and keep accurate logs and inventory of all drugs used. J Responsible for performing all other related duties as directed or assigned. The number of officers on duty, within any coverage area, is dependent upon staffing levels and assigned work responsibilities. Currently, the agency makes every attempt to respond to all service calls before the end of each day, however most routine complaints are allowed to "hold -over" till the next service day (or later). The Study Team felt that the current hours for field operations were ineffective; shifts should include total weekday and weekend coverage, a later end time to daytime shifts, and some evening coverage during seasonal periods. In addition, Humane Officers need to be released from shelter duties and spend the majority of their time in the field. However, an increase in service cannot be introduced at current manpower levels. Determining Field Staffing Needs Determining the optimum or desirable number of Animal Control Officers has remained an elusive goal for the profession. Several professional groups have tried to develop a model for justifying the desired level of officers. In some cases, this model appeals to budget officials and executives because of the apparent scientific approach to this issue. Results, however, have been mixed. In some cites, the model has done nothing more than measure the volume of work and provides a basis for deploying personnel. The service spectrum in each Animal Control department varies according to the management style and philosophy of the director, polices of government and community expectations. Where cities or agencies only count the calls for service within a community to determine optimum staffing, officer safety, citizen safety and major types of service delivery are not factored into overall staffing needs. In Animal Control work, enforcement responsibilities, population density and diversity, along with coverage area need also be a consideration for future planning. Staffing which is determined solely on the ability "to respond quickly to a call" does not address a basic Animal Control responsibility - protection of people and animals. Policies, Field Operations 5-4 and in some instances, ordinances affect staffing needs. In cases where officers can give warnings or educate violators to prevent future occurrences, the officer has spared an animal the distress of impoundment or reduced the possibility of further violations. Attendance in court by officers also affects availability. Although there is no universally accepted scientific methodology for determining the number of Animal Control Officers needed in any given jurisdiction, there are three models that are variously employed in determining an appropriate number of personnel. * Some jurisdictions have attempted to evaluate the estimated growth in residential and business activity and predict the need for additional personnel. * The use of comparative data from the National Animal Control Association Data Survey factoring in population, square miles served, and whenever possible, enforcement responsibilities. i.�l. The "calls for service" model is used primarily as a workload indicator because the data represents a recognizable and readily measurable demand for Animal Control service. Comparing the number of calls for service from one jurisdiction to another, however, can be very tenuous, because of the variety of calls and the response to Animal Control efforts to encourage citizens to call on any perceived problem. Determining the number of officers requires an assessment of citizen calls, officer -initiated calls, citations, written warnings, assisting outside agencies, the need for safety and security, a flexible beat structure, time spent on investigations, preventive patrol time and the specific types of service that the public wants and expects. The basic elements of the "calls for service" model are as follows: Q Each 8 -hour Animal Control position requires 2,920 hours to fill one shift for 365 days. Cl Officer availability for staffing is determined by deducting from 2,080 hours (the maximum for one year), and the time required for vacation, sick leave, court time, "flex" days and training. In using this model, the average number of hours dedicated for Animal Control will be 1,832 hours (a standardized ratio), or 229 days. ❑ Determine the relief factor (relating to the number of officers needed to fill one position for the entire year) by dividing the number of days of work required for each beat area in a year (365) by the average number of days officers actually work in a year. In using this ratio, the 365 divided by 229 = 1.60 officers per day, per beat area. Officer Availability The Study Team attempted to assess the approximate level of time committed by HIHS Officers to field duty. A detailed analysis is not possible because data was not presented for review. Based on current field officer deployment, officers typically spend 4-5 hours, per shift, in the field. Field Operations 5-5 Distribution of Workload Requests for service are separated into "priority" classifications. Priority 2 and 3 calls are described within a July 13, 1998, memorandum as follows: Priority 2 j Running loose complaint; owner known. Ll Animals in trap (weather O.K. and 24 hours has not elapsed). L11 Follow-up on complaints. Cal Dead animals in public right-of-way. L) Animal -related complaints. Priority 3 U Owner surrenders (service fee). Ci Random strays. C) Dead animals on the side of a roadway. L1 Live animal trap on request. During short staffing conditions, officers will take all priority calls, however low -priority calls maybe handled the following day (or later). The Study Team was not presented any data used to determine actual calls for service per beat area or the most requested calls for service. Recent fiscal year reports offer only "phone" statistics which do not reflect the number ortypes of complaints actually answered byfield personnel. These phone statistics are listed in the following chart: Indicator 2000 1999 1998 Calls for Assistance 8,651 9,933 13,276 After -Hour Emergencies 215 220 241 Miles Traveled 131,831 143,439 128,745 Dead Animals PIU 353 418 640 Complaint/Comply Notices 1,186 842 NIA Citations Issued 82 67 64 Source: HIHS Officers are encouraged to "educate first" and "cite last," but all calls are primarily left to the reporting officer's discretion. In general, the agency is more public -relations oriented than enforcement -directed. Service delivery appeared to be approached uniformly between most officers. Meld Operations 5-6 LunchNacation/Sick Relief Officers are required to report to work at the moment their shift begins. There is no written policy which directs Humane Officers into the field within any specific time upon the commencement of work. Workers receive a lunch break (30 minutes) and two 15 -minute breaks. Vacation, sickness and court appearances will dictate shift support. Overtime is sometimes allowed and relief officers can be called in to assist. Supervision As stated earlier, all field officers are supervised by the Shelter Managers, who may be defined by the Study Team as a mid-level supervisor. Both of these workers offer field support, whenever necessary. In addition, the Keaau shelter offers a Senior Humane Officer. Policy 8.00 of the HIHS S.O.P. states that "when two or more Animal Control Officers are on the same scene the most senior or ranking member will be in charge." It is a common practice in Animal Control work for field supervisors to assist in answering calls or backing other officers when call loads become heavy or manpower shortages occur. Patrol Districts Although the agency has identified 3 coverage districts, HIHS dispatches officers to calls anywhere in their jurisdictional areas. It is fairly common for dispatch to send field personnel from one area to another when the call satisfies the prioritization list or there is a shortage of manpower on any given shift. Staff members are provided maps (which details exact street locations) to assist in determining jurisdictional responsibilities. Since the agency is responsible for such a large coverage area, low -priority service calls are routinely held over for a response during a certain day of the week. While the Study Team understands the purpose of holding such calls (limited manpower, driving time, fuel costs, etc.), this practice is unusual and is not typically found in Animal Control work. Within most agencies, service call response is dictated by the priority of the complaint or the order in which the complaint was received, not by driving distances or an officer's assigned coverage area. The workload statistics reviewed by the Study Team did not separate calls by type, the most requested service call, or calls by county division. No policy is offered which would require that personnel be routinely rotated into different districts. Currently, HIHS officers work in the districts in which they reside. Rotating zones Field Operations 5-7 gives officers a chance to become familial -. with different areas of their service delivery region. Since limited information was presented regarding calls for service, ii would be impossible for the Study Team tc determine the equality of district boundaries. Galls for Service An in-depth analysis of "calls for service" was not possible. No data was provided to the Study Team separating calls by type, the most requested service call, or calls by county division. Limited information was provided to the Study Team on workloads, which represents a major data source for determining staffing levels within the agency. Quality of Personnel Within HIHS, vacancies in all positions are posted as based on assigned responsibilities. Job requirements are assigned to each area. Vacancies are posted in-house and advertised outside the organization (newspaper, Internet classifieds, "First to Work" program) to attract qualified applicants. Qualifications for the Humane Officer positions include a high school diploma or college degree (desirable); posses animal handling or veterinary technician experience, in addition to customer service experience; offer a professional demeanor; be a self -motivator; posses good oral and written communication skills; posses the ability to organize and prioritize work with a good problem -solving ability, with the ability to exercise good judgement; posses a valid driver's license and clean driving abstract; and four years of paid work experience. Previous work history ("telephone reference check") and education is verified, and criminal background checks are performed on Humane Officer applicants and any other position involved in the euthanasia process. Depending on the position, potential employees are also subject to a traffic abstract review. Physical examinations and/or drug testing are not required (however, during the course of the worker's employment, he/she may be subjected to such an exam or testing). There are no special incentives to hire minorities or females. All applicants have the opportunity to review job descriptions prior to being interviewed. Field Operations 5-8 Human Resource Management HIHS officers are identified by titles and achieve certain levels of pay grades. Most Animal Control organizations have initiated a military type "rank" system, which can strengthen the chain of command within field operations. A ranking system gives recognition to long-term employees that receive no other benefits for their longevity. This acknowledgment also promotes more professionalism in the field. NACA has found that animal control/care organizations benefit greatly from this type of structure. Field Communications Information regarding field communications maybefound in Chapter3, "Communications." Vehicles Field Service Delivery Vehicles (FSDVs) are used by HIHS Officers to provide service response. The current fleet was described as follows: Year 2000 Make/Model Mazda 53000 (truck) Mileage 12,312 Transport Type Light Bar camper shell no 1999 Toyota (truck) 70,406 camper shell no 1995 Nissan (truck) 108,158 camper shell no 1994 1992 Mercury Tracer (car) Nissan (truck) 109,240 198,470 N/A N/A "home-made" unit no 1991 1991 Ford F-150 4x4 (truck) Toyota (truck) 131,973 129,258 camper shell no "home-made" unit no 1989 Ford F-150 304,873 metal open shell rotatin li ht Source: HIHS The agency also owns a stock trailer for the transportation of livestock (this equipment is stationed in Waimea). The Mercury Tracer is primarily used by the Staff Veterinarian for travel among the 3 shelters. Four of the FSDVs are outfitted with a "camper shell" which have been modified on the interior to transport animals ("vari-kennels"). Two other FSDVs offer a "home-made" commercial animal containment unit. A remaining unit offers a metal open shell, utilizing vari-kennels to confine animals. Most of these units protect animals from the elements and utilize open air venting and/or windows to provide fresh, outside air. No temperature gauges are offered within the cab of each truck to enable officers to monitor the interior Field Operations 5-9 temperature of the holding compartments. None of the FSDVs offer air conditioning in the animal holding compartments, thus animals may be exposed to extreme heat conditions. The "home-made" units were manufactured locally by an unknown source. The units examined were not recognized as having; been produced from a known vendor in Animal Control/Care work. The units showed signs of age and deterioration in several areas. Animals confined on these vehicles are not protected from the outside elements, Keaau FSDV as the open-air partitions (located in the front and back of each unit) allows rain to enter interior holding compartments. situation also exists with the vehicle offering the metal open shell. This same For the most part, the vehicles are kept clean and in good repair, however some are in need of repair or replacement. The fleet color scheme (vehicles of varying colors) also seemed to be unusual and not consistent with other Animal Control/Care agencies. A fleet management schedule is not offered to replace vehicles once a maximum mileage range and/or age are achieved. Scheduled maintenance is performed by a private garage. Officers are responsible for maintaining all their vehicles and related equipment. Impounded animals are confined on the FSDV's. Officers are required to drop-off animals whenever needed, and at the end of each shift. No policy currently exists which dictate a set maximum period that animals are confined on the FSDV's. Officers typically unload impounded animals within the confines of the security fencing area. Should an animal escape, it would take some effort to recapture it, as the perimeter fencing covers a large area. In addition, the access gates to these areas are left open during operational hours, thus an escaped animal would be able to leave the facility grounds at -will. As stated earlier, none of the FSDV's are equipped with air conditioning. Although the current method of transport (for the most part) protects the animal from the outside elements, animals may stili be exposed to extreme heat. All the officers interviewed stated that they afforded animals special considerations during extreme heat conditions. While these units utilize open air venting and windows to provide fresh, outside air, these considerations are not a matter of policy. All containment units should be fitted with temperature gauges, which may be monitored by officers within the cab of each truck. If needed, air conditioners should be installed. In addition, a strict policy or mandate should be introduced regarding animal transport in HINS vehicles. Field Operations 5-10 The Study Team also expressed concerns regarding the "camper shell" models currently in use. The units inspected offeronly 2 vari-kennel compartments. This limited holding area increases the likelihood that multiple animals may be transported within the same compartment, which encourages disease transmission and possible injury. The agency might consider purchasing commercially -produced animal containment units for each vehicle, as the "camper shell" models currently used by HIHS are not typically utilized in this profession. Officers are required to clean and disinfect their truck after every unloading to prevent the spread of disease (not a matter of policy, however). The agency's _insignia and phone number appears on each FSDV. Public service announcements are not included. Of the 7 FSDVs currently in the HIHS fleet, only 1 of these vehicles is equipped with a rotating amber light (which was clearly not impressive). Since many Animal Control related deaths involve personnel being struck by vehicles, NACA endorses the use of red or blue lights (preferably light -bars), where available for use by law. Otherwise, high -visible strobe - type lighting should be installed on all vehicles to increase visibility from the front and rear (the current trend in law enforcement is to utilize strobe -type lighting; HIHS needs to research the legalities of using red or blue lights, since laws vary from state to state). Equip sent Since Animal Control Officers typically have 4 -times as much public contact as their police counterparts, it is imperative that personnel have access to safe and modern equipment. Most safety equipment is provided by the agency, and designated employees instruct subordinates in their use. Eye protection, gloves (disposable and bite), snappy snares, catch -poles, muzzles, tools, traps, leashes, flashlights, cat graspers, and safety vests are provided to those employees who require this equipment. Although the agency offers each employee up to $50.00 annually for footwear, protective boots are not required. Personnel are responsible for "supporting and adhering to our (HIHS) safety rules and regulations, and for performing their duties in the safest manner possible." Officers are not allowed to carry sidearms or pepper spray, however batons are offered (the agency has recently placed an order for bite sticks). It should be noted that the types and quantity of equipment varies among HIHS officers. For example, not every Humane Officer is issued a stretcher to assist in the transport of injured animals. Designated staff members train entry-level employees on the use of equipment, and this training is documented via the "Individual Training and Education Record" (the StudyTeam was unsure if all the listed topics are covered during a recruit's 6 -month probationary period). The Study Team was advised that none of the field staff has received training regarding the use of chemical immobilization equipment. Employees are held accountable for materials utilized during their shift of duty (policy 19.01, "Use of County or HIHS Field Operations 5-19 Property" which appears in the S.O.P.). Although there is an increasing threat of violence nationally to Animal Control personnel, none of the Humane Officers have been offered a bullet-proof vest to wear while in the field. Modern vests should be purchased and offered to all personnel as an added safety option. The Study Team found mixed employee reactions when addressing the vest issue. Training Programs Training needs are identified through the pattern of complaints, disciplinary action, performance evaluations, and areas of training interest expressed by the staff. New employees are offered an orientation before beginning work. After hiring, personnel are Keaau PSIDV trained "on the job," usually being placed with designated training staff (senior employees) and/or rotated among several workers. The length of time varies among employees, depending on previous experience and work area. Workers are designated as "in training" for their entire 6 -month probationary period before officially being discharged from the training program. The field training program was described as follows: ❑ 1s` Week - Recruit reviews paperwork with a senior officer. L) 2nd Week - Stay in office; review policies, procedures and ordinances. U 3rd Week - Recruit observes and learns from other HIHS Officers. The recruit spends time with a senior officer, learning a variety of techniques and safety procedures. Senior officers and/or a supervisor will continually observe recruits in action to gauge the recruit's progress. In addition, the Shelter Managers are required to "ride -along" with all Humane Officers at least once annually in an effort to evaluate a worker's performance. Much of the training for field personnel is performed while "on the job" or sometimes through outside seminars or training conferences. Based on interviews and on-site evaluations, the Study Team determined that several employees posses adequate officer safety skills. Additional information regarding training, the badging process, and "Rule 19" maybe found within Chapter 2, "Administration." Field Operations 5-12 Uniforms All field personnel wear uniforms (a "golf' type" shirt and pants or jeans). The Study Team observed one basic uniform style during the course of the study period. Officers are provided shirts, trousers, a duty belt and footwear. While current policy requires that work shoes or boots "must provide protection against injury while the employee is performing his/her normal work duties," several workers were observed wearing footwearwhich affords little protection. Written regulations regarding "dress code" may be found in the HIHS S.O.P. and the Employee Manual. Regulations also prohibit certain items from being worn on the uniform (such as hats). Policies also exist regarding hair, facial hair and hygiene. Uniform inspections are not routinely performed (if the Shelter Manager observes a problem, the officer is notified). Hats are not required to be worn. Humane Officers are offered an annual $200.00 uniform allowance. Officers must clean their own uniforms. When uniforms show signs of wear, they must be replaced. Officers are not allowed to carry sidearms or pepper spray, however batons are offered (the agency has recently placed an order for bite sticks). The Study Team felt that the agency should consider an upgrade of Humane Officer uniforms to reflect a more "enforcement" type appearance as is commonly found in Animal Control/Care work. Enforcement Procedures The Study Team had an opportunity to review enforcement procedures first hand. The weekday and Saturday shifts were observed. HIHS is responsible for enforcing state statutes and County ordinances. Most of these offenses are classified by the Study Team as "animal ordinance violations." The responsibilities of the HIHS Officers are outlined within the HIHS S.O.P. and the job description. Humane Officers are not granted arrest powers, nor do they have the authority to carry firearms. Forthe most part, the general public has some knowledge about animal -related ordinances or HIHS. The agency promotes its services and ordinance compliance primarily through field officers making public contacts, speaking engagements or media exposure. Since animal regulation is not solely the responsibility of HIHS, some Hawaii County citizens are confused as to which agency to contact regarding animal -related complaints. In fact, several HIHS employees and citizens alike stated that the County, the Police Department and HIHS could do a better job of informing citizens about animal -related issues. The Study Team observed a significant level of frustration among citizens during the on-site visit, which can be partly attributed to a lack of understanding, communication and cooperation between HIHS and the government itself. Meld Operations 5-13 HIHS' primary enforcement responsibilities include most complaints involving only dogs, as cats are not regulated by the County. Animal bites, livestock complaints, and limited wildlife calls (primarily sick/injured or confined in a building and presenting a potential hazard). The agency has access to a stock trailer and has several areas available for the temporary quartering of small and large livestock. Exotic animals are the responsibility of the Department of Agriculture. For the most part, the agency accepts all Waimea FSDV service requests dealing with nuisance dogs. Officers sometimes respond to nuisance cat complaints as a "courtesy" call. Field personnel will impound confined animals (including cats -fora donation), owner surrenders and investigate bites, cruelty, neglect and nuisance complaints. Response is determined by existing ordinance, the amount and quality of information available regarding the problem, the ability to respond based on workload and staffing levels, and the type of response requested by the complainant. The Police Department is responsible for responding to any complaint of dog or cockfighting (HIHS provides support in these situations), and barking dog complaints. HIHS also transports injured or sick animals. The agency offers the following policy regarding veterinary care (policy 14.00, HIHS S.O.P.): Sick or Injured Animal - Licensed/Identified When a member picks up a sick or injured animal, every precaution will be taken by the member when moving or transporting the animal so as not to compound its condition. A member shall attempt to make contact with the owner of an animal that requires immediate medical attention that is wearing something that provides a name, address or phone number. If contact cannot be made, the member shall take the injured animal to the most available veterinary clinic unless extraordinary circumstances, such as 1) a veterinarian is not available, or 2) the injuries are to such an extent, that in the member's best judgement, the animal should be humanely euthanised. Sick or Injured - Unlicensed/Unidentified When a member picks up a sick or injured animal, every precaution will be taken by the member when moving or transporting the animal so as not to compound its condition. An animal that is suffering painfully and is not wearing proper identification may be humanely euthanised. (End of policy) Field Operations 5-14 Not every HIHS vehicle is equipped with stretchers or other similar devices to minimize damage in transporting an injured animal. Only injured livestock may be destroyed in the field (policy 14.05, HIHS S.O.P.). The agency performs its own cruelty and neglect investigations (handled by regular shift officers), however only the Director of Operations has been actually certified as a cruelty investigator. All other field personnel have received training in-house or through outside seminars. The Hawaii County Police Department provides emergency backup for HIHS; not all of the officers interviewed felt confident with their service. Most field personnel feel that HIHS is not aggressive with enforcement. The agency promotes education as a means of resolving problems, and citations are typically issued "only when necessary." At the time of the on-site study, a few officers were temporarily restricted from issuing citations because of a certification ("badging") issue. Without this enforcement mechanism, little would be offered in support of animal ordinances (and to encourage voluntary citizen compliance). The lack of a computer-aided dispatching software greatly diminishes enforcement activities. Under the current system, prior complaints and infractions must me checked manually or the officer would need to have some personal recollection of the violator and the previous offense. In addition, addresses cannot be "flagged" for problem citizens. Written logs and/or a computer database is also used to track citations. Whenever officers issue citations in the field, they have no idea as to the violator's criminal disposition since the agency does not have access to a criminal record's database (access varies from state to state; it is fairly common in some areas of the United States for Animal Control agencies to have access to a criminal records database, usually when affiliated with a Police Department; such a database serves as a valuable tool in researching prior criminal convictions and outstanding warrants). All officers are encouraged to educate first, then cite last. Issuing citations is left to the discretion of the individual officer. The agency offers the following policy (HIHS S.O.P.) regarding citations: 17.00 - An officer shall issue a citation for any violation of a law he/she is charged with enforcing and is committed in his/her presence. Complaint notices are only to be used when the owner is not home or unable to be located. 17.06(a) - Animal Control Officers shall include enough information on their copies of citations in order that any other person can understand the situation and location. (End of policy summary) The Study Team was provided with the following historical data regarding citation statistics: Field Operations 5-15 Violation 2000 1999 1998 1997 Running at Large 58 39 53 53 No License 21 14 10 14 Cruelty 1 4 0 0 Vicious Dog 0 0 0 1 Other 2 10 1 0 Total _ 82 67 64 68 Source. Office of the Legislative Auditor Officers are allowed to void citations under certain circumstances. There are no ticket quotas, and citation statistics are not utilized in any evaluation process. There is a written warning system currently in place: U Complaint Notice - Typically issued when the violator is not available for contact. 0 Notice to Comply - Typically issued when the violator is available for contact. Field follow-up is only performed when time permits. In most cases, officers are required to provide follow-up on their own cases. As stated previously, the Police Department is responsible for responding to certain types of animal -related complaints, both during and after HIHS operational hours. The following chart details the number of "official" reports handled by the Police Department, not including calls for service which are classified as "Miscellaneous Public Complaints": District South Milo North Hilo 2000 39 5 1999 34 6 1998 31 5 Hamakua North Kohala 16 9 11 6 9 11 South Kohala 22 17 22 Kona (North & South) 44 45 50 Kau 6 10 6 Puna 53 63 62 Total 194 192 196 Source_ Hawaii County Police Department Field Operations 5-16 Animal Handling Techniques The Study Team did have an opportunity to view officers in capture situations. While each officer has his/her own techniques or style, it appears that most field personnel have had some training in animal handling techniques and are confident in their own abilities. Officers are provided most of the equipment needed to perform field functions, and backup is available (either by another Humane Officer or a police officer) when Stock Trailer required. Of those observed, the Study Team felt that all of the officers (and shelter staff) observed treated animals in a humane and professional manner. No improper animal handling techniques were observed. The agency offers the following policy (14.01, HIHS S.O.P.) on humane animal handling: "Animals shall be handled in a humane manner at all times. They should not be subjected to physical force other than as may be required in subduing the animals." (End of policy) HIHS Officers are provided in-house training ("Basic First Aid") in animal first aid, however not every HIHS vehicle is equipped with stretchers or other similar devices to minimize damage in transporting an injured animal. Training is also provided on what methods are used to protect the handler from injury ("Safe Animal Handling"). The agency prohibits euthanasia in the field (except in the case of injured livestock), so injured/ill animals must be transported to the animal shelter or to a local veterinary hospital for evaluation. Chemical Capture The agency does not posses a tranquilizer system for the remote chemical capture of animals. The Study Team determined that report writing within the agency is very common. The reports that are completed are inclusive of written information or research. Daily activity logs and reports are kept to document service calls. Officers also write narratives in support of investigations, confrontations or other unusual circumstance. Field Operations 5-17 Officers complete field citations, warning notices, report logs, animal control reports, vicious dog notices and investigation reports. Most of those observed appeared to have some training in report writing and investigative skills. Animal Bites The agency is responsible for enforcing ordinances pertaining to animal bites. Since rabies is not present on the island, animals are not quarantined for rabies observation. An investigation is initiated only if physical evidence confirms that a bite has occurred and the victim requests that the incident be reported. The primary purpose of documenting these cases is in regards to any possible litigation and to qualify a dog as "vicious." The agency is not responsible for investigating wild animal bites. Instead, these cases are referred to local health officials for followup. The Study Team was asked to make a recommendation regarding the processing of barking dog complaints. Currently, the Police Department is required to investigate noisy animal complaints, which involves a quantitative analysis by the reporting officer for testing the validity of a complaint. Some courts have questioned the legalities of Animal Control or Police involvement in such complaints because: • Humans, by nature, have different levels of tolerance. • Investigating officers do not live in the area, thus would not be disturbed. ►L) Identification of the offending animal by sound, not sight. The Study Team feels that the burden of such complaints should rely heavily on the complainant. In most cities, the field officer acts as a "mediator" between the complaining party and the animal owner. Any legal action needs to be initiated by the complainant, either by signing a complaint through the field officer or the municipal attorney. The complainant should access the need to call his/her own witnesses for court to testify in their behalf. Any statements required should be made in front of a judge. In conclusion, the field officer should attempt to defer legal action by mediating the initial grievance, however any future complaints should require a signed notice to appear in court from the complaining party. Here again, some courts have stated that because Animal Control or Police Officers do not live in the area, how can the dog disturb their repose? County of Hawaii Ordinances Information regarding this topic may be found in Chapter 10, "Hawaii County Ordinance Review." Field Operations 5-18 Courtroom Procedures The Study Team was unable to observe courtroom testimony during the evaluation process. Field personnel were interviewed on delivery methods and techniques. HIHS is involved with the following court systems: Q 3`d Circuit Court (state and county offenses) Violations involve court dates and/or fines. Officers are summoned to appear when violations are contested and are allowed to ACO in Action interview witnesses prior to their testimony. Officers usually meet with the prosecutor just prior to the hearing, and are required to have all pertinent information/evidence available at that time. The Study Team did receive some complaints from HIHS officers regarding occasional difficulties in communicating with the Prosecutor's Office. Support from the Prosecutor's Office was described by HIHS Officers as follows: ❑ Good support from prosecutor and judge in this area (Waimea). ❑ Average - really don't know. L) It has gotten better; there used to be little interaction. 13 Don't get the support they need. Q Animal Control cases should be assigned to one prosecutor. Advantages: This individual would be more knowledgeable of animal -related ordinances, support Animal Control endeavors to urge owners to comply, expedite hearings, and assist in training officers in regards to the law and court demeanor. Workers face disciplinary action for missing court appearances. Personnel are compensated for time spent in court and are required to wear their uniform or "business attire." The majority of field personnel interviewed have received training in court testimony and on how to present evidence in court. A "Legal Seminar for the HIHS" has also been offered to provide instruction on county and state laws and the rules of search and seizure. Field records and any other information that officers need must be retrieved by the officer prior to court. For serious offenses, the Hawaii County Police Department is charged with storing evidence and maintaining the chain of custody. Other evidence is left in the Shelter Manager's charge. Policy 16.00 of the HIHS S.O.P. (entitled "Evidence") details this process. Meld Operations 5-19 HIHS offers Polaroid cameras to assist in documenting serious crimes for evidence. The agency recently received a donation of a digital and video cameras. Summary Analysis of Field Operations In the judgment of the Study Team, a review and assessment of HIHS field operations indicates that the department is understaffed. A minimum of 1.6 field officers, per beat area and shift, should be offered in each area. Using the "calls for service" model, HIHS should increase weekday field staffing levels to 14.4 officers (the "calls for service" formula has been predominately used in Animal Control work over recent years). The Study Team was unable to determine the desired number of personnel for any evening or weekend shifts, since the lack of data for "calls for service" (specifically emergency call -outs and complaint demand for those days in which routine field coverage is not offered) prevents a definitive recommendation on shift coverage. It is obvious that district boundaries need to be redrawn in an effort to improve service response. Current district boundaries are much too large - field officers spend more time actually responding to the call, than at the scene. Data should be generated and analyzed in each County district area in an effort to ensure the equality of district boundaries. Here again, insufficient data prohibits the Study Team from offering any suggestions regarding district lines and officer deployment. As manpower levels increase, the agency should introduce permanent weekend (both Saturday and Sunday) and limited evening field service. Once established, HIHS will also need to identify an evening and weekend field supervisor (or "lead"). At no time should any shift be left unsupervised. All calls for service should be answered before the end of the day, regardless of their nature. The practice of holding calls until the next day (or later) does not reflect well on the department's service delivery. The agency may be better served by attempting to distinguish what types of calls are selected for delayed responses, and for how long. More efficient service delivery may be promoted by increasing manpower levels or eliminating certain types of calls. The Study Team would recommend that HIHS hire additional shelter attendants and office personnel to release Humane Officers from these responsibilities. Utilizing these workers for shelter and office related duties is unusual and is not a common practice in Animal Control/Care work. Those employees that require "badging" or recertification should be offered this training as soon as possible. Without this enforcement mechanism, little would be offered in support of animal ordinances (and to encourage voluntary citizen compliance). Field Operations 5-20 Recomm ndations 5.01 With an increase in kennel staffing levels, HIHS should discontinue the use of field personnel in the kennel and customer service areas. Rating: 1 5.02 The agency should review and enhance its current policies defining specific service delivery tactics. Rating: 1 5.03 HIHS should annually review its call prioritization program to assure timely response to important calls and a reasonable response to non-priority calls. Citizens should be informed of the approximate time for calls that are not critical. Rating: 1 5.04 The agency should allocate enough field positions as to ensure the needs of citizens are met without undue delays. All calls should be answered before the end of each day. Based on the "calls for service" model, the agency should have a minimum of 14.4 officers on duty, for day -shift. Rating: 1 5.05 With an increase in staffing levels, HIHS should introduce full weekend and limited evening service, and a later end time to daytime shifts. Rating: 1 5.06 Any shift involving field personnel (except those that are on emergency stand-by) should be properly supervised. Any designated "lead" employees should be properly compensated for this added responsibility. Rating: 2 5.07 The agency should abolish its procedure of ignoring or pushing back any call for service until the next day (or later). If manpower levels cannot be increased, the elimination of some types of calls may improve service delivery. Rating: 1 5.08 Field personnel should be rotated into different zones every 90 days. The agency should also gather and review workload statistics to ensure the equality of district boundaries. Rating: 3 5.09 HIHS should maintain data calls for service per shift, per beat area and per officer. Rating: 3 5.10 The agency should develop a policy which would direct Humane Officers into the field within a specific time upon the commencement of work. Rating: 2 5.11 HIHS should phase-out all their animal containment units and replace them with a commercial model typically used in the Animal Control profession. All containment units should be fitted with temperature gauges, which may be monitored by officers within the cab of each truck. If needed, air conditioners should be installed. A strict policy or mandate should be introduced regarding animal transport in HIHS vehicles. Rating: 1 Field Operations 5-21 5.12 Older Field Service Delivery Vehicles should be replaced immediately. Rating: 1 5.13 The agency should identify someone within the organization to develop a fleet management schedule to replace vehicles once a maximum range and age is achieved. Rating: 3 5.14 The current fleet color scheme (vehicles of varying colors) is unusual and not consistentwith otherAnimal Control/Care agencies. All HIHS vehicles should be repainted to offer a uniform appearance among the entire fleet. Rating: 3 5.15 Animal compartments should be cleaned and disinfected after every "unloading" to prevent the spread of disease. Rating: 1 5.16 A secured area should be identified for the unloading of animals. Rating: 2 5.17 Public service announcements should be predominately displayed on the outside of all vehicles. Rating: 3 5.18 The agency should explore the legalities of using red or blue warning lights on Field Service Delivery Vehicles (officers should not use these lights to run "hot' or abuse traffic laws - they are intended to be used in a non -emergency state as added protection and safety when working in high traffic areas). Rating: 3 5.19 The agency should solicit input from field personnel (not just supervisors) on what types of equipment upgrades they require. All equipment should be inspected regularly for damage/deterioration. Equipment should be issued to each individual officer. Stretchers or other similar devices should be purchased to minimize damage in transporting an injured animal. The agency should ensure that each individual officer is issued the same types of equipment. Rating: 2 5.20 Field personnel should be polled as to their acceptance of bullet-proof vests. This equipment should be purchase if endorsed by officers. Rating: 2 5.21 A structured Field Training Program should be introduced. Field personnel should be properly trained in report writing, officer safety procedures, court testimony and investigative techniques. All training should be documented. Certified training should also be obtained from an accredited Animal Control Academy. Rating: 2 5.22 Uniform apparel should be upgraded to provide an "enforcement look." Rating: 3 5.23 HIHS should offer specialized (promotional) positions to include a cruelty investigator. Such a position is common in larger Animal Control agencies and ensures the prompt handling and disposition of these types of service calls. Rating: 2 Field Operations 5-22 5.24 Those employees that require "badging" or recertification should be offered this training as soon as possible. Rating: 1 5.25 The agency should consider implementing a military -style ranking system for field personnel. Rating: 3 5.26 HIHS should implement an "on-call" risk policy for those employees that respond to emergency calls. Rating: 1 5.27 The agency should purchase a tranquilizer system for the remote chemical capture of animals. Anyone involved in the use of this equipment should be annually certified. Such certification should be well documented. Policies should also be introduced describing the situations which would require immobilization. Rating: 3 ,wield Operations 5-23 Arather significant event occurred this past fiscal year without any fanfare or big announcements. But it was definitely good news. For the first time since the Society began keeping track of island:wide animal intake in the early 90s, the number of pets turned in to our shelters decreased - by six percent. While a six percent drop may not seem significant it signals the beginning of what we hope is a continuing trend. It means that the community is taking better care of its pets and that fewer of them are arriving at our shelters needing assistance. It also means that our low-cost sterilization programs are making a difference in the community. We have also made significant strides in the way animals are cared for while in our shelters. With the help of experienced in-house animal care technicians we expanded our animal care program to promote the health and well-being of the pets in our care. We also initiated the use of very effective flea and tick treatments to make animals more comfortable and to reduce the risk of related diseases. This has worked particularly well for the animals in Kona where the hot weather is the perfect environment for parasites to breed. In addition, with the help of our volunteer staff, each of our "guests" awaiting adoption are regularly walked, bathed, groomed, socialized, petted and adored during their stay at the Society. .......................... 01-5-29-2001 01:22Prl Fporl OR P.11100R TO -Z29-146le Z. 0' HAWAII ISLAND "Disirl� Ma -p K46 K L,),Pi&ft'm'MJ 05-29-20101 01:22FT1 FROM OF: PNOCIR TO -321?-4518 F.01 HAWAII[ ISLA" HUMANE SOCIETY Typka) Weekly Schedule - Keaau Shelter Sunday Closod Mgnday 4 Humane Officers ASslg&Iments: 1 110 -Hilo 1 HO - Puna 2 SIO - Wce/Shelter 7.mdm 5 Hunwo Officers Assigtnents: 1140 -MIO 1 i 140 -.Puna 1 HO -Kau 2 HO - Office/Shelter W&4=ldo 4 Humane Offices's A•ssigiitff offs_ 11 0 - Hilo 1 HO - Puna 2 HO - OYiice/Shther Thursday 4 Humane OfOcers 11ssigntnents: 1 Ho - luo 1 HO - Puna 2 HO - Office/Shelter EDWAY $&turd r 5 Humane Offers 3 Humane Officers Assl�ent%: cAssSgnmcnts: I HO - U10 I HO - H110 2 HO - Puma 1 HO - Puna 2 HO - Office/Shelter I HO - Office/Shelter Note: • 1st shM - 7.130am to 4�Wpm 2nd shiR - 8:30am to 5:.O* -a 3rd shy - 9-00am to 5.30 am NATIONAL ANIMAL CONTROL ASSOCIATION POLICY DIRECTIVE Effective Date: July 30, 1998 Subject: On -Call Risk Policy This directive has been formulated and initiated in order to provide a clear guideline regarding the deployment of "on-call" Animal Control personnel and to properly compensate Animal Control personnel who handle these service requests. I. DIRECTIVE 1.1 Each non -supervisory Animal Control Officer will be required to be on-call on a rotational basis on weekends, holidays and whenever necessary on weekdays. 1.2 The on-call period is to be determined by the Animal Control Manager. The Manager shall be responsible for preparing an on-call schedule and providing this information to the police dispatcher. The Manager and line personnel shall determine what types of calls qualify for emergency service response. 1.3 In the event that an employee does not wish to serve on-call, he/she may be excused from his/her obligation if another worker volunteers to serve in their place. 1.4 The employee on-call shall be responsible for responding to all emergency service requests during the on-call period. In the event that the employee has determined that additional assistance is required, he/she shall contact the Animal Control Manager. If the Animal Control Manager is unavailable, the employee shall contact any other Animal Control Officer for assistance. 1.5 An Animal Control vehicle shall be made available to the on-call employee. He/she may use this vehicle for the performance of related duties. The vehicle will not be available for personal use. 1.6 Accessability of on-call personnel: The on-call employee shall carry a pager at all times or notify the police dispatcher of a phone number where he/she may be reached in the event of a call -out. Personnel are required to make contact via phone or pager within 30 minutes from initiation of the page. Personnel are then expected to report immediately from the time of contact, with consideration for safety, and to provide the police dispatcher with an estimated time of arrival. NA CA On -Call Policy - 1 1,7 The on-call employee will not engage in any activity while on-call which could impair his/her function (such as alcohol consumption), 1.8 It is reasonable to expect that on occasion employees may not be in proper condition to report at the time of call-in (i.e., lack of rest, legitimate illness, lack of child care, prescription drugs or other conditions which may impede the employee's ability to perform). On these occasions, it shall be the responsibility of the on-call employee to notify the Animal Control Manager of the situation. Continuous non -response to emergency call - outs may be grounds for disciplinary action. 1.9 Under no circumstance shall any one employee be on-call more then seven (7) consecutive days. 1.10 Any on-call employee shall receive 8 hours of uninterrupted rest before returning to work another shift. The Animal Control Manager shall have the authority to release on-call personnel, with pay, until such employee is well rested to safely perform their duties. It is the Animal Control Manager's responsibilit-y to aff rd the em to ee adequate time to rest before returning for duff II. STANDBY COMPENSATION 2.1 Standby means a period of time outside an employee's regularly scheduled work hours during which the employee is required to remain available for emergencies with a specified response time. 2.2 The Animal Control Manager may require an employee to be on standby. Each employee shall be available, at the Animal Control Manager's discretion, for recall to perform necessary work. Standby assignments shall be limited to work situations where a probability of recall of an employee exists. 2.3 Employees who serve in positions of a voluntary nature (i.e., unpaid, voluntary "reserves") are not eligible to receive standby pay, but may receive pay in accordance with the call-in policy when called back to work after a regular work schedule. 2.4 Each employee who is eligible to receive standby pay shall be compensated at the rate of one (1) hour of regular pay for each three (3) hour period the employee is required to serve on standby status. 2.5 Each employee on standby who is called into work shall be compensated for the actual hours worked at the appropriate rate of pay. Only the hours actually worked by the employee shall be credited in determining eligibility for overtime compensation. NA CA On -Call Policy - 2 2.6 When an employee is restricted to a particular telephone number at a location designated by the employer, or to the employer's premises (in order to remain personally available to the employer), the employee shall be compensated at his/her appropriate rate of pay and shall not receive standby compensation. 2.7 Any employee on standby who is not available, when called, and who does not present a reasonable justification for failure to report when called, shall lose standby compensation for that standby period and may be subject to disciplinary action. NA CA On -Call Policy - 3 National ,animal 0 Control Association THE PROFESSIONALS CHAPTER 6 OCCUPATIONAL SAFETY PROCEDURES The Study Team had an opportunityto review occupational safety procedures in the kennel and field areas of HIHS. HIHS workers have access to a safety training officer (who has been identified as the Director of Operations). The following occupational injury/illness statistics were provided to the Study Team: Sick Leave Usage (in hours) 2000 1999 1995 1997 1996 449.50 547.50 171.50 459 741 Source: HIHS Injury Report 2001 chipped tooth (2), strain (1), foreign body (1) 2000 animal bite (2), sprain (1) 1999 animal bite (3), strain (4), sprain/fracture (2), wound/scratch (2), foreign body (1) 1995 strain (1), puncture (1), mental stress (1), laceration/cut (1) 1997 animal bite (1), strain (2), cut (1), foreign body (1) 1996 animal bite (3), strain (1) Source: HIHS Weekly meetings are offered at the Kailua-Kona and Waimea facilities; bi-weekly meetings are held at the Keaau shelter. Safety topics are often discussed at these meetings. To report an accident, the employee must notify his/her supervisor immediately. Injury reports are completed for all injuries and submitted for claims. Limited information regarding employee safety issues is offered in the current HIHS S.O.P. The agency's safety policy appears within the HIHS Employee Manual (page 6, "Safety'). HIHS employees are offered training in proper lifting techniques (video instruction). Back support belts are also provided. An eye wash station was observed only at the Kailua-Kona shelter should accidental exposure to drugs or chemicals occur. A first aid kit was also offered at this facility (in the hallway of the main building), however the Study Team discovered that is was void of any medical supplies. Within all 3 facilities, chemical Occupational Safety Procedures 6-1 containers are properly disposed of along with needles and other medical wastes. Employees receive training regarding OSHA requirements and Material Safety Data Sheets during their orientation and employees have 24-hour access to the MSDS Manual. The frequency of assaults on employees is not common, but it does occur. Some employees have been threatened (verbally). Humane Officers are offered training in "conflict avoidance" during the badging process. Other HIHS employees have received training in conflict resolution ("Angry Customers: Diffusing the Situation"). Much of the safety training for personnel is performed while on the job, usually by designated employees. In-house training is offered; the "Individual Training and Education Record" details the following safety training curriculum.- urriculum:L) L) Fire Exits. 0 Chemicals: Handling and Storage. U Lifting. ❑ 911: When to Call the Police. 0 Safe Animal Handling. Q Angry Customers. [a Basic First Aid. 0 Back Care and Safety. 13 Fire Extinguishers. 0 Stress Management. L11 Proper Apparel for Safety. 0 How to Give & Receive Criticism. None of the staff were known to carry occupational exposure advisory cards. New employees are advised, when hired, of the possible health risks they may face, and how to recognize and avoid those risks. First aid and CPR classes are offered to employees, however it is unknown if this type of training is required. Since rabies is not present on the island, high risk employees are not offered the rabies prophylaxis. Tetanus vaccinations are mandatory. Hepatitis vaccinations are not offered. Most safety equipment is provided by the agency, and designated employees instruct subordinates in their use. Eye protection, gloves (disposable and bite), snappy snares, catch -poles, muzzles, tools, traps, leashes, flashlights, cat graspers, and safety vests are provided to those employees who require this equipment. Although the agency offers each employee up to $50.00 annually for footwear, protective boots are not required. Personnel are responsible for "supporting and adhering to our (HIHS) safety rules and regulations, and for performing their duties in the safest manner possible." Officers are not allowed to carry sidearms or pepper spray, however batons are offered (the agency has recently placed an order for bite sticks). Although there is an increasing threat of violence nationally to Animal Control personnel, none of the Humane Officers have been offered a bullet-proof vest to wear while in the field. Modern vests should be purchased and offered to all personnel as an added safety option. The Study Team found mixed employee reactions when addressing the vest issue. Based on interviews and on-site evaluations, the Study Team determined that several employees posses adequate officer safety skills. Employees have received some training Occupational Safety Procedures 6-2 in zoonotic diseases (provided by the Staff Veterinarian) and animal handling techniques; most training that workers receive is "on the job." None of the HIHS staff members have been certified in defensive driving techniques (classroom training only). Drivers' licenses are reviewed annually for validity. Vehicle accidents involving employees are investigated by local law enforcement officials. The agency provides investigative materials (reports, photos, diagrams) in the event of claims. HIHS offers policies within the Employee Handbook and S.O.P. in regards to safe vehicle operation. Of the 7 FSDVs currently in the HIHS fleet, only 1 of these vehicles is equipped with a rotating amber light (which was clearly not impressive). Since many Animal Control related deaths involve personnel being struck by vehicles, NACA endorses the use of red or blue lights (preferably light -bars), where available for use by law. Otherwise, high -visible strobe - type lighting should be installed on all vehicles to increase visibility from the front and rear (the current trend in law enforcement is to utilize strobe -type lighting; HIHS needs to research the legalities of using red or blue lights, since laws vary from state to state). The 1992 Nissan truck, assigned to the Keaau facility, also offers a "backup" alarm. Within the customer service area of all 3 facilities, there are no physical barriers (such as a counter window and door) to prohibit visitor access into employee work areas. Panic buttons were not observed at any of the shelters. Only the Keaau facility offers a security alarm system. During normal business hours, the public is allowed unrestricted access to the animal holding areas, usually when accompanied by an HIHS employee. Decibel levels have not been tested in the kennel areas. During the on-site study, unacceptable sound levels were evident within the Waimea kennel section. Within all 3 shelters, outside lighting was stated to be inadequate to provide protection for employees reporting to or leaving duty in the dark. HIHS currently does not offer any safety procedures for those employees (on-call Humane Officers) who must work after dark. Wet floors tend to be inherent in animal shelters due to the nature of the business. Since a few cleaning tasks are undertaken during those times when the animal holding areas are open to the public, visitors receive some exposure to wet floors in any accessible area. Floor fans, squeegees and mops are used to facilitate the drying process (in addition, "wet floor" signs and "caution cones" are offered to notify visitors of this potential risk). Fire exits are posted in most areas of all 3 facilities. The location of fire extinguishers is also part of the orientation process. The agency offers an evacuation plan (and policies) relating to the emergency withdrawal of impounded animals. Occupational Safety Procedures 6-3 Recommendations: 6.01 The use of protective equipment/clothing (to include safety footwear) by the agency should be mandated to guarantee employee safety and protect the HIHS from liability. Rating. 1 6.02 Eye wash stations should be installed in euthanasia, vaccination and chemical dispensing areas should accidental exposure to chemicals or drugs occur. Rating: 1 6.03 First aid kits should be installed in animal holding areas. Medical supplies should be inventoried on a regular basis. Rating: 1 6.04 All employees should be issued occupational exposure advisory cards. Rating: 3 6.05 All employees should be trained in CPR and first aid. This training should be mandatory. Rating: 2 6.06 Although rabies is not present in Hawaii County, it is NACA's standard recommendation that gn y employee that has contact with animals should be offered the rabies prophylaxis (this preventative treatment should be made mandatory). Rating: 2 6.07 A continuing safety program should be developed for all employees. Areas that should be included are animal behavior and handling, officer safety, lifting techniques, self defense, conflict resolution, and zoonotic diseases. Rating: 1 6.08 Field personnel that are susceptible to risky situations or possible physical confrontations with the public should be vaccinated for hepatitis. Rating: 3 6.09 Any field employee should be issued bite sticks and pepper spray to enhance officer safety. All personnel should be certified in the use of such equipment. Rating: 1 6.10 Any employee that operates an agency vehicle should be certified in defensive driving techniques. Rating: 2 6.11 The customer service areas within each shelter should be redesigned to isolate employees from possible assault situations. Panic buttons should also be located in an area easily accessible by employees in the event of an emergency. Rating: 1 6.12 Decibel levels should be tested within the kennel areas to determine if unsafe conditions exist for workers. Ear plugs should be mandatory for employees. Rating: 1 6.13 The agency should evaluate outside lighting in the public and employee parking lots and offer improvements, if necessary, for safety purposes. Rating: 3 Occupational Safety Procedures 6-4 National Animalt • r Association THE PROFESSIONALS CHAPTER 7 LICENSING The County of Hawaii ordinance requires that all dogs be licensed and that the license be worn at all times. A review of the Hawaii County Code, Chapter 4: Animals states that: Article 3. Dog License fees. Section 4-12. Pees (a) The following fees are hereby established as biennial license fees for the privilege of owning, harboring or keeping of dogs in the County: (1) Sterilized dogs - $2.00 (2) Unsterilized dogs - $6.00 (b) For purpose of this section a sterilized dog means a spayed female dog and a neutered male dog. Section 4-13. Sterilization Any person seeking to have his dog licensed at the sterilized dog rate must present a certificate from a veterinarian licensed to practice within the State showing description, age, and breed of the dog and certifying its sterilization. (End of ordinance description) Only dogs are required by law to be licensed. Voluntary cat registration is offered by HIHS. Cat identification tags are available at the 3 sheltering facilities. The fee for the tag is $2.00 ($5.00 for a tag and a safety collar). Cat identification tags never expire, and registration information is maintained by HIHS should the animal ever be impounded. Dog license tags are sold at all 3 animal shelters. Each facility is allocated a certain quantity of tags. Since rabies is not present on the island, a rabies vaccination is not a prerequisite to licensing (such a requirement is common in most areas of the United States). Proof of sterilization is required at the time of license purchase. In those instances in which adoptable dogs are waiting for transport to local veterinarians for spaying or neutering, new pet owners are charged the lower license fee, even though their new pet has not yet been surgically altered. Tags must be renewed every 2 years, and expire on December 31 st of the second license term. The Hawaii County Treasury Division is responsible for mailing renewal notifications, which are typically sent prior to the tag's expiration date. Dog owners may renew or apply for new license tags by mail (Treasury Division or HIHS) or obtain them in person from the Treasury Division offices in Hilo or Kona, or the 3 animal shelters. During the on-site study, Humane Officers were also observed selling license tags to citizens in the field (such sales are tracked via the "Dog License Assignment Sheet"). Replacement tags may be obtained for only 10 cents. Oddly enough, the State of Hawaii imposes a 10 cent 'tax" on each license sold. This fee is added to the total cost of each license sold ($2.10 and $6.10). Licensing 7-1 The current fines for an unlicensed dog is $25.00 for the 1St offense, $50.00 for the 2nd offense, and $75.00 for the 3`d offense. Humane Officers may issue a verbal or written warning, if the situation warrants, for any 1St offense violation. Licensing records procedures were described as follows: "Dog licenses from all 3 shelters are sent to the Kona shelter. At the end of each month, they are reconciled, reviewed for completeness, and then sent to the County along with a check for the appropriate amount." (End of procedure). Hawaii County provides a computer printout, of all the license tags sold, to each sheltering facility. HIHS tracks all tags sold by the 3 shelters via a Microsoft Access database. A HIHS volunteer is responsible for collecting monies and tracking license sales. HIHS promotes the licencing program through information distributed to the public or through contacts by HIHS Humane Officers. (/Vote: A HIHS promotional pamphlet reviewed by the Study Team states that, "Hawaii County law requires that all dogs over the age of 3 months be licensed." The Study Team was unable to confirm the age requirement after a comprehensive review of the current ordinance.) The Treasury Department is responsible for tracking unsold licenses. During the on-site review, a few tags allocated to HIHS were listed as "missing" on monthly statements (apparently the County does not require that every tag be accounted for). In fact, an October 1, 1998, memorandum confirms that HIHS has "been having trouble getting accurate information on the dog licenses that are sent in by shelters. Many times the information is incomplete, sometimes, there is virtually no information." Some of these discrepancies, the Study Team believes, may occur when volunteers (who are unfamiliar with the process) assist shelter customers with paperwork. The Study Team suggests that HIHS strengthen its own internal control of license tags to improve this situation. It is unknown if any audits or integrity checks are performed on clerical entries of licensing information. Monies generated from license sales are returned to Hawaii County and are used to offset program expenses. The Study Team was provided the following historical data regarding HIHS licensing sales: Indicator 2000 1999 1998 1997 Number Sold 3,639 3,312 4,064 3,485 Revenue 1 $16,024 1 $15,026 1 $17,028 1 $151923 Source: HIHS The following chart details County licensing sales during the same period: Licensing 7-2 Indicator 2000 1999 1998 1997 Number Sold N/A N/A N/A N/A Revenue $11,404 1 $12,555 $7,166 $8,855 Source: County of Hawaii The National Animal Control Association offers the following licensing policy statement: POLICY STATEMENT State and/or local statutes should require all dogs to be licensed, and require licenses to be worn at all times. Licenses should be considered as permits which shall mandate specified responsibility and privileges of ownership. Licenses should be issued only upon proof of necessary immunizations. BASIS FOR POLICY Licenses provide for the proper identification of dogs and their owners. It has been proven that licensing programs, adequately enforced, greatly reduce the numbers of surplus animals impounded unnecessarily, and encourage owner responsibility. Licenses provide owners with proof of legal ownership. Licensing fees can provide a necessary revenue base for animal control services. Fines for licensing violations also help off -set the tax burden to the general public for such services. POLICY RECOMMENDATIONS Licensing laws should be fully enforceable by animal control officers and police officers, and should prescribe progressive penalties for repeat violations. Licenses considered as permits maybe revoked for specific violations. NACA recommends that licensing programs be designed to provide a fast, efficient means of identifying dogs and their owners. Licensing records can be easily maintained via a central, local registry. Annual registration may help keep licensing records current and accurate, as circumstances frequently change in the lives of people and their pets. At the minimum, NACA recommends that licenses include complete owner contact information, and a complete description of the licensed dog. It is also helpful to include whether the dog has been spayed/neutered. Licensing should be required as a condition for owning, harboring, or keeping a dog, and not combined with restraint laws. Licensing 7-3 CATS POLICY STATEMENT State and/or local statutes should require all cats to be licensed, and require licenses to be worn at all times. NACA rejects the argument that cats are wildlife, and adopts the policy described for dogs. BASIS FOR POLICY Cats pose similar problems in today's society to that of dogs. Public health concerns include the threat of rabies or other diseases from cat -inflicted bites or scratches. Damage to property and overpopulation results in the degradation of community appearance and sanitation. NACA cites the pet -food industry as one example of American society's classification of cats as domestic animals. Cats share people's lives, homes, and hearts as proven companion animals. Cat ownership, then, should require responsibility for their welfare and owner responsibility to the general public. Cat licensing also extends to owners the benefits of legal ownership, a valuable means of identification, and services that cats considered as wildlife might not otherwise be afforded. POLICY RECOMMENDATIONS Licensing laws should be fully enforceable by animal control officers and police officers, and should prescribe progressive penalties for repeat violations. Licenses considered as permits maybe revoked for specific violations. NACA recommends that licensing programs be designed to provide a fast, efficient means of identifying cats and their owners. Licensing records can be easily maintained via a central, local registry. Annual registration may help keep licensing records current and accurate, as circumstances frequently change in the lives of people and their pets. At the minimum, NACA recommends that licenses include complete owner contact information, and a complete description of the licensed cat. It is also helpful to include whether the cat has been spayed/neutered. Licensing should be required as a condition for owning, harboring, or keeping a cat, and not combined with restraint laws. (End of statement) Recommendations: 7.01 Based on NACA's policy statement, the County of Hawaii should require that all dogs and cats to be annually licensed and to require those licenses to be worn at all times. License fees should be established (at a rate consistent with the national average) in addition to offering differential fees (sexually altered versus unaltered) to encourage pet sterilization. Information regarding the actual number of licenses sold should be tracked annually by the County of Hawaii and offered in a summarized format. Rating: 3 Licensing 7-4 7.02 In addition to licensing, the Study Team would also recommend that the County of Hawaii and HIHS explore the possibility of requiring the control of cats. This practice is fairly common throughout the United States and would enhance current nuisance ordinance compliance. Rating: 3 7.03 Audits should be performed to insure the integrity of licensing data entry. Rating: 3 7.04 License tags should be audited at the beginning and end of every fiscal year. Rating: 3 7.05 The County of Hawaii should explore the possibility of allowing local veterinarians to sell license tags. This procedure is fairly common throughout the United States and would enhance the current licensing program. Rating: 3 Licensing 7-5 OWL National Animas 0 Control Association THE PROFESSIONALS CHAPTER 8 EMPLOYEE ATTITUDE SURVEY The Study Team conducted several interviews with HIHS personnel. During the course of these discussions, employees identified areas of strength and weakness within their organization. All of the following comments were made by personnel. These remarks should not be perceived as "employee grumbling," but rather as meaningful, constructive criticism which may pinpoint problems and develop solutions. There were several multiple comments on the same issues. Opportunities for Improvement HIHS needs more money for training. The agency needs competitive wages. Field workers need new trucks. HIHS and the County should increase spay/neuter funding. The agency should hire more Humane Officers. HIHS needs software. The agency needs 2 additional ACOs (1 on each side of the island). Need a data -entry worker. HIHS needs a full-time veterinarian. Workers need additional training (not just local; need to see how mainland ACOs operate). Humane Officers should be allowed to focus on just Animal Control. We currently wear too many hats. Everything is reactive; HIHS needs to become more proactive. HIHS needs clerical staff to work in the front office to free -up officers for field work. Citizens are uninformed about ordinances and the authority of HIHS. Should establish a definite separation between Animal Control and Humane Society duties. HIHS needs more support from citizens regarding animal abuse cases (many times the witness is intimidated and afraid of retaliation, thus the prosecutor drops the case even though there is enough evidence to support that the animal is abused). Citizens complain about the lack of enforcement, but education is good for violators. We need increased support for training. County needs a leash law; animals should be under control, even if they are in their own yard. HIHS should network more with the community regarding our mission. The Keaau facility requires additional dog and cat holding areas. HIHS should hire office and kennel workers to eliminate field officers from performing these duties. A computer database should link all 3 shelters together; need laptops in trucks too. Need a more dependable communication system in the field. Purchase chemical immobilization equipment and train the workers to use it. Should purchase new trucks with commercial animal holding beds. Officers need professional looking uniforms. Humane Officers should be provided bite sticks and pepper spray. Employee Attitude Survey 8-1 Opportunities for improvement (con't) The Keaau shelter should have 2 field shifts (8 am - 4 pm and 2 pm - 10 pm). All employees deserve a raise/incentives/bonus. Field officers require increased training regarding large animal restraint and capture. Animal Control should be moved to the Police Department. The agency requires additional employees to clean and feed. HIHS resources are limited (money and staff). Keaau facility needs a puppy kennel and a separate isolation kennel. Employees need a raise! HIHS needs to improve communication among employees. Need more kennel space. Should buy better/newer trucks. Staff requires additional office space. Trucks need new stretchers. Waimea shelter should be located in town. HIHS staff needs a pay raise. All 3 shelters require upgrading. Staff members should be offered more training. Field workers should be provided with bullet-proof vests and bite sticks. Waimea shelter needs a part-time office worker so that the shelter remains open longer. Need new trucks. Staff should be told how the money is spent (Animal Control versus Humane Society). Animal Control enforcement geared towards frills (nice, friendly HIHS image). Lack of equipment, resources, authority. HIHS beliefs conflict with laws. Need better pay. The lack of a tranquilizing system looks bad for HIHS. Agency needs to physically separate Animal Control and Humane Society. Facilities operate at full capacity - no cat separation. HIHS makes do with what they have. Hands are tied due to laws, HIHS policy and public opinion. Not enough field personnel. Need better/competitive wages. Agency should purchase new capture equipment, trucks and safety equipment. Kona facility needs to be rebuilt. Need a separate adoption facility off-site. Veterinarian should be full-time. More personnel, more kennels. Need a new facility, more volunteers, and a volunteer coordinator. Entire Kona facility requires improvement (build new kennels and cattery). Increased public education. More training (self-defense) and new vehicles. HIHS does selective enforcement of laws as they don't want to upset donors or create a negative public image. Employee Attitude Survey 8-2 Opportunities for improvement (con't) Understaffed, ill-equipped, lack of training. HIHS only wants specific laws enforced (i.e.: state laws regarding loose dogs on property without tags). Current County code is very weak. Officers drive-by a lot of situations that cannot be enforced. County should increase impound fees to equal to fine schedule. Kona shelter needs office staff for customer service area. Field staff should be in the field. County should raise fines, offer court-ordered community service. Animal Control laws need more "teeth." Need pepper spray and pepper spray training. Wish they could use a tranquilizing system in the field. Should move Animal Control to the Police Department - would increase officer safety. Need more training. Officer safety should be improved (sidearms, mace, bite sticks). The amount of paperwork should be reduced. Call response time needs to be improved. Need more staff, equipment and time. HIHS should purchase a data management system. Build some decent kennels! Purchase some updated equipment (trucks, animal handling equipment, etc.). Increased training - more opportunities on the mainland. Wages could be improved. Should hire ? more Humane Officers, full-time vet and data manager. Strengths County has become more involved - just starting to get better. Have a good relationship with police in Waimea. Care of the animals. Workers have good people skills. HIHS is very resourceful - with what we've got! Strong and creative staff. Community really does support HIHS (despite the negative comments of a few). Education by officers is a strength. Field officers are good mediators. Keaau shelter has good employees. Based on our limited resources, animals receive good care. HIHS managers are supportive of employees. We educate the public. Waimea operation has a strong presence in the community. Ability to educate owners. The reason I'm still an HIHS employee? I love animals! Employee Attitude Survey 8-3 Strengths (con't) Good teamwork between Police Department and HIHS. Handle cruelty and neglect complaints effectively. The spay/neuter program. Educating the public. Driving force to get animals adopted. Keep things clean. Try to help public. Teamwork. Waimea operation receives good support from the community (in most areas). Recommendations: 8.01 HIHS should develop a system for routinely collecting relevant information on employee grievances and disciplinary actions. Rating: 3 8.02 The agency should institute (within its own organization) an annual awards program to recognize outstanding performance and contributions. Rating: 3 8.03 HIHS should introduce an employee idea program (with possible financial incentives) to encourage new and innovative concepts in improving service delivery. Rating: 3 Employee Attitude Survey 8-4 ilational Animal ,♦ control Association THE PROFESSIONALS CHAPTER 9 COMMUNITYIINTERAGENCY RELATIONS HIHS attempts to promote itself as a positive influence within the community. A lack of dedicated staffing and resources limits proactive community involvement. The two Community Programs Coordinators oversee this area (both of these positions were vacant during the on-site study). These workers are responsible for "developing and managing volunteer and community outreach programs, including humane education, special events and fund raisers." Their essential duties and functions include: U Recruit volunteers to staff shelters, and community and special events. 13 Interview all prospective volunteers to identify and assess their skills, talents, desires, etc. • Orient new volunteers to their purpose and specific tasks/duties. • Establish and maintain a supportive working relationship with the shelter manager(s) and humane officers. • Create and maintain volunteer schedules based upon the needs of the staff and availability of volunteers. • Maintain current volunteer files. • Work with the other Community Programs Coordinator to create and maintain a volunteer procedures manual. • Oversee community outreach programs such as humane education in schools; spay/neuter compliance follow-up phone calls; new adopters follow-up phone calls; Foster Family Program; Pet of the Week Program; Mobile Adoptions Program; Pet Friendly Rental Network. • Help to maintain a high profile for community programs through the use of media including newspaper, radio, television and other means as appropriate. HIHS occasionally offers public service announcements regarding responsible pet ownership or care. Literature is also distributed to the public on agency services (shelter and field) and programs. If any issue involves the agency, then the Executive Director communicates with the media. The agency believes that it has developed a positive relationship with the media, and that it has used this resource as a way to communicate needs and concerns to the general public. As of late, this contact has been reactive, as HIHS has had to "defend' itself against local criticism. The agency is working to improve community relations; HIHS currently participates in community speaking engagements and school presentations. Participation is limited, since HIHS presently offers no staff members dedicated to this area. The agency coordinates several fundraising events throughout the year, in addition to shelter tours, microchipping and adoption events, and juvenile and adult presentations. Staff members are responsible Community/Interagency Relations 9-9 for contacting groups and soliciting educational programs. HIHS attempts to accommodate all requests, however the problems with under -staffing makes it difficult to coordinate such events without placing additional burdens on other employees. The Study Team was not presented with the number of education programs offered in the 2000-2001 Fiscal Year. HIHS currently offers a structured volunteer program. Volunteers compliment the HIHS workforce by donating labor and time to the care, feeding, grooming, and exercising of animals, in addition to assisting the HIHS shelter staff with day-to-day shelter responsibilities. The Study Team was advised that the agency currently has 5-6 active volunteers in Kona and 8-10 active volunteers in Keaau (no information regarding Waimea assistance was provided). HIHS also utilizes community service workers. One HIHS volunteer oversees the organization and administration of the Spay/Neuter Community Assistance Program and is responsible for collecting licensing monies and tracking license sales. This individual alone donates hundreds of volunteer hours annually on behalf of HIHS. Adoptable animals are promoted through local media groups. Although the agency has yet to develop its own Internet web site, HIHS partners with the Animal Rescue Coalition of Hawaii to "showcase" adoptable animals and offer information on lost and found pets. The organization interacts with several agencies; the local police department, the Department of Natural Land Management, the National Park Service, County departments and agencies, local veterinarians, breed rescue groups and other community animal welfare organizations. Although some differences in philosophies have surfaced, HIHS attempts to maintain a positive, working relationship with all outside interests (apparent conflict does exist between the HIHS and another organization, however). The agency provides written quarterly reports to the Mayor, County Council and Chief of Police. The Executive Director or the Director of Operations act as the liaison to interface with other state and local government entities. The Executive Director described the current state of HIHS interagency relationships as "improving." Several issues relayed to the Study Team are covered in other areas of this report. In addition, the Study Team was asked to address the following concerns: Advisory Board Several citizens interviewed by the Study Team felt the need to establish an Advisory Board. Such a Board would act only in an "advisory" capacity, however governments are typically influenced by their decisions. Advisory Boards commonly establish goals or objectives and identify specific Board responsibilities. The Study Team believes that Advisory Boards can make a valuable contribution to HIHS if it functions as a structured group with mutually agreeable goals and objectives. While it Community/Interagency Relations 9-2 is understood that differences in philosophies will sometimes surface, Board members should place personal agendas aside and concentrate on improving the quality of animal services within the delivery area. Critical policy changes or drastic shifts in operations should be reviewed by the Board before action is taken. It is important that the Board, HIHS, and the community maintain an open channel of communication to discourage mistrust and misrepresentation. The Study Team believes that a new Board should be established to include: 1. A licensed veterinarian who resides within the service area. 2. A representative from County government. 3. A representative from the Police Department. 4. A representative from the Contract Administrator (Finance Department). 5. A member of a recognized humane organization within the service area. 6. A member from an animal rights group within the service area. 7. An at -large member from within Hawaii County. A member from the contractor (HIHS) would also act as a liaison to the Board (not a voting member). All prospective Board candidates should be screened thoroughly for any conflict of interest they may have with Animal Control prior to being appointed to the Advisory Board. New Board members should be provided a training manual and/or instructions on the purpose of the Advisory Board and Board member responsibilities. By-laws should be written, including the addition of a "conflict of interest" policy statement. The County Council should also appoint all Advisory Board members. Meetings should be structured under Robert's Rules of Order. The following excerpt appears in the International City Manager Association's (ICMA) Management Information Report on "Local Animal Control Management," Volume 25, Number 9, September 1993: An excellent method of administering a community animal care and control program is to establish by legislation an oversight commission with specific duties and powers. An animal control commission can do most of the research and legwork involved in developing and monitoring animal control laws and services. It increases public accountability and governmental efficiency. The commission should be set up as an integral part of the local government and consist of a representative of the health department; the chief of police (or the chiefs representative); a veterinarian; representatives of local humane organizations; and additional citizen members, one of whom should have relevant legal expertise. All appointments to the commission should be made by the local government authority, and the members should appoint their own chairperson. Duties assigned to the animal control commission usually include: Community/Interagency Relations 9-3 ❑ Making recommendations on rules and regulations for the care and control of animals and facilities covered by the ordinance. [a Reviewing budgets and contracts for all animal control work. Q Conducting public hearings when necessary to determine whether any individual or establishment is in violation of the ordinance. ❑ blearing appeals of persons whose permits or licenses have been revoked by the licensing authority. ❑ Hearing complaints about the professional conduct of animal control personnel or the local government itself. 0 Mediating conflicts between the local government and a contracting humane organization over reimbursement for animal control services or other problems. 0 In some municipalities, the animal control commission is distinct from another entity often called an animal matters hearing board. Such a board, which may or may not report to the animal control commission, is responsible for hearings and appeals related to dangerous dogs, permit revocations, and other matters. (End of excerpt) Citizen Complaints In an effort to ensure that all citizen complaints are investigated expeditiously and solicit a response, it is suggested that the County of Hawaii introduce a process to review citizen complaints in an "unbiased" fashion. The Study Team would suggest that HIHS and the new Advisory Board develop a procedure in which to investigate citizen complaints regarding the HIHS staff or service -related criticism. The purpose of this procedure is to build trust among government, the contractor and the community. Complaints regarding staff conduct, lack of service, operational issues, etc., should be made in writing and submitted to the Advisory Board Chairperson (underno circumstances should personnel issues be discussed in an open public forum; doing so may place the Board in an uncomfortable position and expose itself to possible litigation). Allegations should be based on facts (not rumors or "3`d -hand" information), and witnesses to these events must be willing to support the compliant with detailed testimony and recollections of the event. The complaint then should be investigated by the Executive Director. If the matter involves the Director, then this worker's supervisor should examine the complaint. Of course, any allegation regarding a potential criminal act should be investigated by local law enforcement officials. All complaints should be examined thoroughly and disposed of within a given time -frame. The final disposition of such complaints should be delivered by the Advisory Board Chairperson to the complainant and not discussed within an open public forum. Community/Interagency Relations 9-4 Contract Administration For the first time in any NACA evaluation, the administration of a field and/or shelter contract was found to be entrusted to the Department of Finance. In NACA's previous experiences, contract administration has been delegated to a Police or Sheriffs Department, Health Department or City or County Administrator. While the Study Team does not dispute the commitment or efforts of the Director of Finance or his staff regarding the contract's administration, it is apparent that Finance Department personnel do not possess the level of Animal Control knowledge or expertise necessary to effectively oversee HIHS operational issues and address citizen complaints. - It appears that the administration of the contract (which was previously overseen by the Police Department) was awarded to the Finance Department by "default," as no other County department expressed any desire to accept that responsibility. Throughout the United States, citizens have repeatedly expressed concerns related to proper contract administration to ensure a maximum return on their taxpaying dollars. The technical administration of an Animal Control contract is an important activity. It is absolutely essential that those entrusted with this responsibility must ensure that government, and taxpayers, receive the "biggest bang for their buck." The contract administrator should possess some specialized knowledge of the work the contractor will perform, including a familiarity of field and shelter operations, and current trends and innovations in Animal Control/Care work. The following excerpt appears in the Office of Federal Procurement Policy's "A Guide to Best Practices for Contract Administration', October 1994: Contract Administration involves those activities performed by government officials after a contract has been awarded to determine how well the government and the contractor performed to meet the requirements of the contract. It encompasses all dealings between the government and the contractorfrom the time the contract is awarded until the work has been completed and accepted or the contract terminated, payment has been made, and disputes have been resolved. As such, contract administration constitutes that primary part of the procurement process that assures the government gets what it paid for. In contract administration, the focus is on obtaining supplies and services, of requisite quality, on time, and within budget. While the legal requirements of the contract are determinative of the proper course of action of government officials in administering a contract, the exercise of skill and judgment is often required in order to protect effectively the public interest. The specific nature and extent of contract administration varies from contract to contract. It can range from the minimum acceptance of a delivery and payment to the contractor to extensive involvement by program, audit and procurement officials throughoutthe contract term. Factors influencing the degree of contract administration include the nature of the Community/Interagency Relations 9-5 work, the type of contract, and the experience and commitment of the personnel involved. Contract administration starts with developing clear, concise performance based statements of work to the extent possible, and preparing a contract administration pian that cost effectively measures the contractor's performance and provides documentation to pay accordingly. Post award orientation, either by conference, letter or some other form of communication, should be the beginning of the actual process of good contract administration. This communication process can be a useful tool that helps government and contractor achieve a clear and mutual understanding of the contract requirements, helps the contractor understand the roles and responsibilities of the government officials who will administerthe contract, and reduces future problems. It is helpful to have a pre -meeting with applicable program and contracting officials prior to the post award orientation conference so that there is a clear understanding of their specific responsibilities and restrictions in administering the contract. Items that should be discussed at the pre -meeting include such things as the authority of government personnel who will administer the contract, quality control and testing, the specific contract deliverable requirements, special contract provisions, the government's procedures for monitoring and measuring performance, contractor billing, voucher approval, and payment procedures. Where appropriate, an alternative dispute resolution technique known as "partnering" should be discussed with the contractor to help avoid future contract administration problems. Partnering is a technique to prevent disputes from occurring. It involves government and contractor management staff mutually developing a "plan for success," usually with the assistance of a neutral facilitator. The facilitator helps the parties establish a nonadversarial relationship, define mutual goals and identify the major obstacles to success for the project. Potential sources of conflict are identified, and the parties seek cooperative ways to resolve any disputes that may arise during contract performance. The process results in the parties developing a partnership charter, which serves as a roadmap for contract success. Many agencies have successfully used partnering on construction projects and are now beginning to apply these principles in the automated data processing/information resources management area. Good contract administration assures that the end users are satisfied with the product or service being obtained under the contract. One way to accomplish customer satisfaction is to obtain input directly from the customers through the use of customer satisfaction surveys. These surveys help to improve contractor performance because the feedback can be used to notify the contractor when specified aspects of the contract are not being met. In addition, the contracting and program officials can use the information as a source of past performance information on subsequent contract awards. Customer satisfaction surveys also help to improve communications between the procurement, program, and contractor personnel. (End of excerpt) While it is probably cost prohibitive to hire a Contract Administrator (with experience in Animal Control operations) to specifically oversee this contract, the County should consider Community/Interagency Relations 9-6 reassigning the administration of the contract to an agency that may be a more "natural fit" and possesses some knowledge of public safety and health issues, such as the Health Department or Police Department. Of course, the transfer of such responsibilities should include additional financial and administrative support, and training for those involved in this process. A Division of the Contract Service Area The Study Team was asked to comment regarding the possibility of Hawaii County dividing the contract service area among multiple contractors providing the same service. The current Agreement requires that one contractor offer service countywide. The Study Team has previously dealt with contract separation of field and shelter services, not a division of the same service among multiple contractors (however, NACA is currently conducting another evaluation offering that exact service). Since the Study Team is recommending that field operations be transferred to the Police Department (as stated later in this chapter), such a move would already create 2 separate entities - one providing field service, the other providing sheltering services. Splitting contract responsibilities (among HIHS and the West Hawaii Humane Society) would also create these additional concerns: ❑ A separation of the same service would probably increase the level of confusion (and frustration) among citizens regarding jurisdictional and contract -related responsibilities, especially during the transfer of the field program. ❑ The current relationship between HIHS and the West Hawaii Humane Society may actually hinder any improvements in service. ❑ Contract administration would require additional oversight and efforts (fund distribution, appraising performance measures, responding to citizen complaints, etc.) on the part of the County. The Study Team would not recommend a division of current contract responsibilities until such time as the new field program has been established. The issue of splitting shelter services may then be researched and reviewed by the new Advisory Board for any further action. Feral Cats The Study Team received several complaints from citizens regarding the regulation of cats and feral cats. Several recommendations regarding the licensing and regulation of cats appear in other areas of this report. Within this section, the Study Team would like to address the topic of feral cats. The National Animal Control Association offers the following policy statement in regards to this issue: POLICY STATEMENT Animal Control/Care Officers should be empowered to remove all feral and unwanted cats from the community. A feral cat is defined as a cat that has been born in the wild or Community/Interagency Relations 9-7 forsaken by the original owner for an extended period of time. BASIS FOR POLICY To protect the public from cats living in the wild and to minimize the potential for a rabies outbreak. POLICY RECOMMENDATIONS In order to protect owned cats, all local or state governments should pass laws requiring the vaccination and license of all cats in their community. These laws should also require that all owned cats be identified with a traceable license, microchip, or tattoo so as to identify them from feral cats. NACA recognizes that in some circumstances, Trap, Neuter, Vaccinate & Release programs may be effective and recommends that each agency assess the individual needs within their community and respond accordingly. (End of policy statement) In contraryto NACA's recommendation, the Wildlife Society, based in Bethesda, Maryland, offers the following policy statement entitled "Feral and Free -Ranging Domestic Cats Feral and free -ranging domestic cats are exotic species to North America. Exotic species are recognized as one of the most widespread and serious threats to the integrity of native wildlife populations and natural ecosystems. Exotic species present special challenges for wildlife managers because their negative impacts are poorly understood by the general public, many exotic species have become such an accepted component of the environment that many people regard them as "natural," some exotic species have advocacy groups that promote their continued presence, and few policies and laws deal directly with their control. Perhaps no issue has captured more of the challenges for contemporary wildlife management than the impacts of feral or free -ranging human companion or domestic animals. The domestic cat is the companion animal that recently has attracted the most attention for its impact on wildlife species. Domestic cats originated from an ancestral wild species, the European and African wild cat (Felis silvestris). The domestic cat (Fells catus) is now considered a separate species. The estimated numbers of pet cats in urban and rural regions of the United States have grown from 30 million in 1970 to nearly 65 million 2000. Reliable estimates of the present total cat population are not available. Nationwide, approximately 30% of households have cats. In rural areas, approximately 60% of households have cats. The impact of domestic cats on wildlife is difficult to quantify. However, a growing body of literature strongly suggests that domestic cats are a significant factor in the mortality of small mammals, birds, reptiles, and amphibians. Because free -ranging cats often receive food from humans, they can reach population levels that may create areas of abnormally high predation rates on wildlife. When the wildlife prey is a threatened or endangered species, the result may be extirpation or extinction. Effects of cat predation are most pronounced in island settings (both actual islands and island of habitat), where prey Community/interagency Relations 9-8 populations are already low or stressed by other factors, or in natural areas where cat colonies are established. Competition with native predators, disease implications for wildlife populations, and pet owners' attitudes toward wildlife and wildlife management also are important issues. Extensive popular debate over absolute numbers or types of prey taken is not productive. The number of cats is undeniably large. Even if conservative estimates of prey taken are considered, the number of prey animals killed is immense. (Feeding cats does not deter them from killing wildlife as they do not always eat what they kill. Humans introduced cats to North America and they must be responsible for the control and removal of cats that prey on wildlife. The policy of The Wildlife Society in regard to feral and free -ranging domestic cats is to: • Strongly support and encourage the humane elimination of feral cat colonies. ❑ Support the passage and enforcement of local and state ordinances prohibiting the public feeding of feral cats, especially on public lands, and releasing of unwanted pet or feral cats into the wild. 1 Strongly support educational programs and materials that call for all pet cats to be kept indoors, in outdoor enclosures, or on a leash. U Support programs to educate and encourage pet owners to neuter or spay their cats, and encourage all pet adoption programs to require potential owners to spay or neuter their pet. [a Support the development and dissemination of sound, helpful information on what individual cat owners can do to minimize predation by free -ranging cats. • Pledge to work with the conservation and animal welfare communities to educate the public about the negative impact of free -ranging and feral cats on native wildlife, including birds, small mammals, reptiles, amphibians, and endangered species. • Support educational efforts to encourage the agricultural community to keep farm cat numbers at low, manageable levels and use alternative, environmentally safe rodent control methods. • Encourage researchers to develop better information on the impacts of feral and free -ranging cats on native wildlife populations. • Recognize that cats as pets have a long association with humans, and that responsible cat owners are to be encouraged to continue caring for the animals under their control. • Oppose the passage of any local or state ordinances that legalize the maintenance of "managed" (trap/neuter/release) free -ranging cat colonies. (lend of policy statement) The Study Team does not deny the impact feral cats may have on native wildlife populations. It is suggested that the trap/neuter/release issue should be researched and reviewed by the new Advisory Board for further action. Community/Interagency Relations 9-9 Shelter Flours The Study Team believes that current shelter hours do not favor today's working households. Facility hours are listed as follows: • Kailua-Kona - This facility is open to the public five days a week, Tuesday, Thursday, Friday and Saturday, 8:00 a.m. to 3:30 p.m., and Wednesday 8:00 am to 6:00 pm. • Keaau - This facility is open to the public six days a week, Monday through Saturday, 9:00 a.m. to 5:30 p.m. The shelter is closed on Sunday. L) Waimea - This facility is open to the public five days a week, Tuesday through Saturday, 12:00 p.m. to 4:00 p.m. The shelter is closed on Sunday and Monday. With these limited hours, many adoptable animals receive decreased "marketability." Once manpower levels increase, it is suggested that cleaning personnel begin work at an earlier time (such as 7:00 a.m.), and that animal holding areas open at 10:00 a.m. and close at 6:00 p.m. On Saturday, all shelters could open at 10:00 a.m. and close at 4:00 p.m. The shelters could remain closed on Sunday. The Study Team would also suggest that HIHS poll shelter visitors as to their desired days and hours of operation. The County -Owned Kailua-Kona Sheltering Facility The First Amendment to the Agreement requires that "the Contractor shall operate and properly maintain 3 animal shelter facilities, to include the County -owned Kailua-Kona pound. The term "properly maintain" shall be according to standards established by the National Animal Control Association, the Humane Society of the United States, or any other nationally recognized animal welfare and control organization acceptable to the County." The Agreement is not specific as to which entity would assume the cost associated with major facility upgrades or enhancements. While HIHS should be commended on its fundraising efforts directed to provide facility improvements, the Study Team does not believe that any major upgrade of the Kailua-Kona shelter should be the sole responsibility of HIHS. The facility is County -owned. It is ridiculous for taxpayers and government officials alike to assume that the cost of such improvements should be borne entirely by the contractor (and would become the property of the County at such time that the contractual relationship would end). In short, any major structural improvements should be funded, either wholly or in part, by County taxpayers. Based on previous NACA evaluations and professional experiences, the Study Team has determined that most animal shelters offer a maximum range of 25-30 years of usefulness. There is little doubt that the current facility is in need of upgrading. The Study Team would recommend that the County, the new Animal Control Advisory Board and the contractor develop a long-term strategy that includes a new animal sheltering facility for this service Community/Interagency Relations 9-10 area. In addition, consideration should also be given to adding an additional facility for southern County residents and an upgrade or new facility in the Waimea area. The Adoption of Dogs to Hunters The First Amendment to the Agreement states that"if the Contractor, at its sole discretion, opts to establish and carry out an adoption program, at least for the period July 1, 2001, to June 30, 2002, such a program shall not exclude potential adopters solely on the basis that the potential adopter is a bird or pig hunter. The Contractor's failure to abide by this may constitute a breach of contract, and the County may proceed to cancel the contract, and/or may be entitled to any other remedy entitled by law." The National Animal Control Association offers the following policy statement entitled "Adoptions".- POLICY Adoptions". POLICY STATEMENT A professional animal control agency is one that moves beyond enforcement to prevention. A successful adoption program focuses on quality placements in efforts to break the cycle of unwanted, surplus animals. BASIS FOR POLICY Adoption is the opportunity for shelters to make a difference in the life of an animal. The objective is not to "sell" the animal but to sell the new owner on the principle of proper pet management. The success of an adoption program will be determined by the quality of the adoption (e.g. animal's long term tenure in home, licensed, spayed/neutered, and vaccinated.) POLICY RECOMMENDATIONS Shelter adoptions should include some form of required sterilization, preferably prior to adoption. NACA supports the concept of early (8-16 weeks of age) spay/neutering. Alternatives may include enforceable contractual obligations which require sterilization within specified time periods following adoption. Incentives for sterilization may include reduced license fees, discounted sterilization costs, or prepayment of all or part of sterilization costs. Shelters should temperament test all animals to be considered for adoption to make sure they are suitably socialized. Potential adopters must demonstrate that they will be responsible pet owners. An adoption questionnaire may prove successful in determining the prospective adopter's past ownership history, their reason for adopting, and their ability to financially and emotionally provide for the animals basic and extended needs. Established periodic follow-ups should be made during the first year of the animal's placement to assist in problem solving and reinforce principles of proper pet care. (End of policy statement) As you can see, NACA does not offer a specific statement regarding the issue of adopting animals to hunters. A poll of other national organizations (the RSPCA, HSUS and AHA) Community/interagency Relations 9-11 solicited the following response from the Humane Society of the United States: HSUS Guidelines for Responsible Adoption Programs - Reason for the Adoption Adopt animals only to individuals who intend to keep them as household companions. No dogs should be placed to serve primarily as guard dogs or hunting dogs, and no cats should be placed to function merely as barn cats or mousers. (End of excerpt) While the Study Team sympathizes with HIHS regarding the moral dilemma of adopting out animals which may be exposed to possible injury, the Study Team believes that responsible pet owners should not be excluded from the adoption process. However, the Study Team would caution the County of Hawaii in one regard. The adoption clause which appears in the FirstAmendment to the Agreement is not advisable. One very simple fact has been ignored in regards to this issue; once the legal impoundment time has ended, an impounded animal becomes property of HIHS and the County has no legal authority or right of ownership in determining an animal's final disposition. Should the County begin to interfere in such matters, it could be construed that the County is legally, and financially, responsible for all impounded animals for their entire stay with the contractor. The Maddie's Fund The Study Team was asked to comment regarding a proposed County partnership with local humane organizations to obtain grant money (specifically from the Maddie's Fund) for reducing animal euthanasia. The following information appears on the Maddie's Fund Internet website: A revolutionary mission to create a no -kill nation by supporting courageous, creative and compassionate solutions that mobilize entire communities to achieve a single, vital goal while honoring core values and a life -protecting ethic and building a solid base of grass-roots philanthropy. The purpose is simple: to end the killing of adoptable (healthy) dogs and cats. The plan is dynamic: to motivate communities to build broad-based alliances by financially supporting collaborative, comprehensive life-saving programs. Maddie's Fund was established in 1994 as the Duffield Family Foundation by Cheryl and Dave Duffield, PeopleSoft co-founder and Board Chairman. The foundation makes good on a promise the Duffields made to their cherished miniature schnauzer, Maddie, to repay all the joy and unconditional love she gave them by supporting animal welfare causes. Maddie died of cancer in March 1997, but her spirit lives on through the foundation recently renamed in her honor that intends to revolutionize the status and well-being of companion animals. Community/Interagency Relations 9-12 Those philanthropic efforts received a significant boost in August 1998 when Maddie's Fund (known as the Duffield Family Foundation at that time) announced its intention to spend more than $200 million to build a no -kill nation. To lead this remarkable program, the Board of Directors turned to Richard Avanzino, a man who over the course of 22 years transformed the San Francisco Society for the Prevention of Cruelty to Animals into a premier, model animal welfare organization and an example for what Maddie's Fund has set out to do. Avanzino joined the foundation on January 1, 1999, as President. "We are investing in collaborative, lifesaving programs, and the payback we expect is a radical reduction in shelter animal deaths," says Avanzino. Generally speaking, Maddie's Fund will begin to achieve its no -kill goal by awarding multi-million dollar, multi-year grants to programs around the country that will have an immediate, direct and measurable impact on ending the killing of adoptable (healthy) dogs and cats within five years. Maddie's Fund defines adoptable (healthy) as dogs and cats older than eight weeks who are healthy and well -adjusted, even if the animal is elderly, disfigured, deformed or disabled. According to Avanzino, "Successful projects are expected to place more shelter dogs and cats in loving homes and to decrease the number of unwanted pets through aggressive spay/neuter programs. We put a premium on bold, innovative and ambitious solutions that incorporate outside the box thinking and ideas." Maddie's Fund is most interested in groups that build coalitions in support of this goal. "Getting animal control agencies, animal shelters, animal rescue groups, volunteer foster organizations, and veterinarians talking and working together is extremely important to our long-term success," says Avanzino. In addition, grant -making efforts will focus on organizations that honor the foundation's core values of honesty, integrity and mutual respect. "We're trying to set the tone of collaboration and cooperation - to promote cordial, professional relations among colleagues and public debate and discussions without personal attacks or recriminations." (End of excerpt) The Study Team was provided information from the Animal Rescue Coalition of Hawaii (ARCH) regarding their grant proposal. ARCH intends to submit a proposal to the Maddie's Fund for monies to finance a spay/neuter and education program, as well as reimburse any Hawaii County animal owner $20.00 for each animal that is sexually altered. Due to the fact that the County has a serious pet overpopulation problem, this proposal would prove to be a great benefit - not only to reducing the pet population but to the taxpayers as well. By reducing the number of animals produced on the island, the requests for field service and animal impoundments would decline in future years. This is not an instant "fix" for the County, but a gradual improvement. Community/Interagency Relations 9-13 The Study Team has some reservations regarding the proposed $20.00 payment for each animal altered. There may be some unscrupulous people who might begin collecting or stealing owned animals in an effort to collect the $20.00 payment. Hopefully, ARCH will implement a strategy that would deter such practices (one suggestion would be to require a picture identification of owners at the time of surgery or other method to prove ownership before payment is made). ARCM should also retain an administrator for the program who has some knowledge of the Fund's requirements. Monthly reports must also be generated in order to obtain uninterrupted funding. The Fund requires that there is "marked progress" in attaining the goals of the proposal to keep receiving financial support. Grant monies cannot pay for buildings or be targeted specifically for a governmental agency. A group must be "no -kill' in order to apply for the grant. The Study Team sees this venture as a "win-win" situation for the County of Hawaii. By reducing the animal population, educating the citizens and decreasing the number of impounded animals, the County will realize a reduction in service costs and limit animal euthanasia. The "No -Kill:" Issue It is the animal welfare community's vision that all adoptable pets should not be destroyed. While the National Animal Control Association shares this vision, the disadvantages of operating a municipal animal shelter are clearly evident. In most cases, municipally -funded animal shelters have an obligation to accept all animals, to include stray, owner surrendered, abandoned and seized. Whereas most no -kill facilities have the right to refuse an animal's admission, publically-funded shelters cannot. For this reason, striving to be no -kill is a difficult goal to achieve. The National Animal Control Association offers the following policy statement entitled, "Limited Access Shelters/Recuse Groups": POLICY STATEMENT Limited access shelters/rescue groups may serve a purpose within a community to provide a long term adoption prospects for a limited number of animals while meeting all state and local codes. BASIS FOR POLICY In order to attempt to find homes for as many animals as possible and reduce euthanasia rates, all organizations that shelter animals must work together to provide the greatest chance for adoption without prejudice towards organizations that are forced to euthanize animals. Community/Interagency Relations 9-14 POLICY RECOMMENDATIONS NACA recognizes a community cooperative approach to reducing pet overpopulation with all shelters and rescue groups working togetherto place all healthy, adoptable animalswith families in their community. NACA further states that all localities must have a full service shelter that accepts all stray, unwanted, homeless, or feral animals regardless of prospective adoption potential and provides them with humane care and treatment including euthanasia if necessary. (End of statement) Governments and Private Animal Control Contractors The County of Hawaii has asked the National Animal Control Association to assess the problems associated with allowing a private contractor to offer Animal Control -related services to its citizens. The following excerpt is taken from the International City Manager Association's Management Information Report on "Local Animal Control Management," volume 25, number 9, September 1993: The public administrators and elected officials of today are well versed in such terms as user fees, management information services, and survey research. And concepts like these apply to animal care and control programs as much as they do to other government programs. Privatization is another popular concept for local government managers, especially as they work to improve government efficiency and effectiveness. In the field of animal control, however, it has become problematic for some governments. Many counties and some cities privatize their animal control operations by contracting out those services to a local, usually nonprofit, humane organization. Contractual arrangements vary from locality to locality. Most often, however, the humane society is reimbursed by the government to provide basic animal control services, including animal pickup and sheltering. Other humane society services, such as education and spay/neuter promotion, may or may not be publicly funded. Although many excellent animal control programs have long been privatized, problems have sometimes occurred when governments have failed to provide adequate funding for animal care and control services and relied on the local humane society to carry the load. Overburdened local humane societies have been forced to curb their most essential services - including educational programs and spay/neuter assistance programs - or shut down entirely. When this happens, local governments must make last-minute funding appropriations or, worse, attempt to handle animal control using untrained staff and a makeshift facility. Cities and counties that contract out animal care and control services must recognize that animal control remains a governmental service, and they must adequately fund and Community/interagency Relations 9-15 carefully monitor contracting entities. Local governments should also consider handling animal care and control services themselves. "Cities and counties are finding out that they can do it themselves and do it right," says Pam Burney, environmental health director for North Richland Hills, Texas, and past president of the National Animal Control Association. Humane groups and animal control commissions are excellent resources for governments that want to build proper facilities; train staff in humane, professional animal handling and care procedures; and run effective, efficient operations that reduce animal -related problems. There are numerous examples of excellent animal care and control programs run by public animal control departments, just as there are many excellent programs run by private organizations. What all have in common is adequate funding." When using private organizations to provide animal control services, considerthese points: 1. How much liability insurance does your contractor carry? Keep in mind that most act as an "agent" for the governmental entity, and thus you are still legally responsible for actions of the contractor. 2. What enforcement powers have you granted to your contractor? Is your contractor aggressive at enforcing your laws? 3. What type of audit procedures are you allowed to place upon your contractor to keep track of the taxpayer's money? 4. Does your contractor offer minimum and continuing training standards for the entire contracting staff? 5. Does your contractor provide adequate sheltering facilities for the care and housing of impounded or surrendered animals? 6. Does your contractor maintain and provide proper equipment and vehicles to ensure animal and human safety? 7. Does your contractor promote a positive image within the community? 8. Does your contractor meet or exceed the requirements to qualify for the contract? 9. Under current state statutes, does your contractor qualify for other types of funding? 10. Now ask yourself one very important question: Does your contractor meet or exceed the same level of services you would expect from your own operation? (End of excerpt) The question of whether or not it is advisable for a humane organization to contract with city and/or county government to do animal control work is open for debate. Many humane organizations perform contract animal control work which runs the gamut from kenneling Community/interagency Relations 9-16 for the city, to complete animal control work for an entire county. As long as the humane organization desires such work, and can perform it properly, this is fine. Most humane organizations have a real struggle during their formative stages to raise sufficient funds to enable them to function effectively. One of the first desires is generally to own and operate an animal shelter. Such a project is costly to begin with and requires a continuous income to offset operational costs. Several humane organizations have turned to contracting with municipal government as a means of assuring such an income. There are several points justifying this course of action: U Often a humane organization could not exist without some contractual income. 0 A humane organization that operates a shelter can hardly avoid doing some, often a great deal, of animal control work anyway. So why not contract, do it all and receive payment? L) Many humane organizations have come into being simply because pound conditions in their area were intolerable. These organizations often have no choice but to take over the enforcement of animal ordinances. In spite of these arguments in favor of contracting, there are also weighty arguments against this practice: 0 The image of the nonprofit charitable agency supported by contributors may be seriously injured when the public realizes such an agency receives tax money. It may be quite true that the tax money received is insufficient to cover the costs of the activities engaged bythe humane organization. However, many taxpayers will never believe this. L) Unquestionably, the "pound" image is not that for which a humane agency strives. There is no doubt that the public has prejudiced ideas regarding animal pounds. Contracting humane organizations must therefore continually stress the humane aspects of their work in order to project a favorable image. L) Law enforcement officers do not enjoy the praise and love of the general public. Operating a pound involves enforcing the animal ordinances. In many people's minds that places the organization in a position of being "against" the animal. The role of the humane agency tries to assume is one of education, prosecuting only in cases of cruelty or flagrant neglect. (E=nforcing a "leash law" may not seem to the public to fall into these categories. Typically, there are three common variations to an Animal Control contract: [1 The Contractor will assume all of the Animal Control -related duties. 0 The Contractor will assume all of the Animal Control -related duties, except the licensing program. U The Contractor will assume animal sheltering duties but leave any of the Animal Control -related responsibilities with government. Community/Interagency Relations 9-17 Several of the concerns relayed to the Study Team has been in regards to the level of field service currently being offered to citizens. The Study Team shares these concerns. Field service inadequacies can be attributed largely to two specific areas - communications and officer deployment. Since Humane Officers are also responsible for shelter and office duties, officers typically spend only 4-5 hours performing field work. The current communication system is also in need of improvement. Complaint processing, field dispatching and an increased partnership with the Police Department are just some areas which require increased attention. Although citizens have continually blamed HIHS forthese service inadequacies, the County of Hawaii must also share in that blame. An ambiguous contract which fails to identify specific service responsibilities and performance incentives, a weak County code, a lack of program attention, along with inadequate Animal Control/Care knowledge regarding contract oversight, has contributed to the current level of field service delivery. Over the past few years, the community has not seen a distinct improvement in Animal Control services. The County of Hawaii may be better served by pursuing other means of service delivery, including abandoning the current operation and building a new field program from the ground up. It is the recommendation of the Study Team that the County of Hawaii should consider the establishment of an Animal Control enforcement division within the Hawaii County Police Department or the Health Department. Shelter services could continue to be outsourced to a local humane organization. Starting an Effective Animal Control Program Virtually every community has an Animal Control program in one form or another. Two types of agencies commonly provide Animal Control services: governmentally -operated agencies and contractual agencies such as non-profit humane societies and profit corporations. Governmentally -operated agencies are usually responsible to a police department or health department. Some governmentally operated Animal Control agencies have an advisory board that assists in giving general direction to managers and allows the community to have greater input into the activities of the program. Whether operated publicly or privately, Animal Control personnel must recognize some basic concepts in order to be effective. People are going to have pets and those pets provide significant beneficial effects to their owners and families. Unfortunately, when pets are not properly cared for, they can be a source of irritation and threaten the health and safety of neighbors. Thus, the problem Animal Control personnel are dealing with is irresponsible pet ownership. The objective, therefore, is changing the behavior of irresponsible pet owners. The animals are not to blame and treating them as if they were is anti -productive. Likewise, Animal Control Officers who act like "super copse and treat every violator like a felon do not lead to solving the problem. Animal Control personnel must tailor their interactions with pet owners to encourage responsible pet ownership. Community/Interagency Relations 9-18 Goals and Objectives Before any organization can be effective, it must identify goals and objectives. A common mistake made by officials is to take the position that their job is only to protect people and not animals. If this position is carried to the extent where the public perceives that animals are not being cared for properly, and the interests of impounded animals are being ignored, pet owners will be less likely to follow the officials' direction and advice. Since it's the behavior of pet owners that must be changed, Animal Control officials must consider the needs of animals in order to be effective. To operate an effective program, your objectives should include: ❑ Investigate all complaints received by the agency before the end of each day and take appropriate action to prevent similar complaints or problems in the future. ❑ License all dogs and cats in the community. ❑ Operate an animal shelter that places emphasis on the needs of the animals, is disease free and presentable to the public. ❑ Make every effort to identify stray pets and return them to their owners. ❑ Reduce the number of unwanted or surplus animals born in the community. ❑ Properly train and equip all employees. ❑ Offer a education program that encompasses all areas of the community. Starting. an Animal Control Program Regardless of the size of the community, successful programs have these characteristics: Local government support - both political and financial. ❑ A comprehensive Animal Control ordinance and the ability to enforce it. ❑ Adequate facilities for both field and shelter operations. A staff of field and shelter personnel that are professionally trained to quickly and humanely handle animals at minimum risk to themselves. ❑ An effective public education program. ❑ A working relationship with the veterinary community. How to Fund an Animal Control Program A good Animal Control program is a community responsibility and should be budgeted as any other program or service available to citizens. We all benefit from a comprehensive Animal Control program that reduces costs while eliminating many other problems. General public funds need to be allotted to finance the program as necessary. However, the total program can be partially self-funded if revenues from the following sources are set aside for this purpose: ❑ Income from license and permit fees. ❑ Impoundment fees charged to persons whose animals have been picked up. Community/Interagency Relations 9-99 ❑ Boarding and redemption fees charged to owners who recover their pets. ❑ Citation fees. ❑ Fees from the quarantine of animals. ❑ Adoption fees. ❑ Private donations to the local government earmarked for the Animal Control program. Many cities use the following formula to develop a budget for the first time: ❑ Population of the service area X $3.00 = Low-end budget. ❑ Population of the service area X $5.00 = High-end budget. County of Hawaii - Step 1 The new Animal Control Advisory Board should develop a plan of action which would set a target date for the "takeover" of field operations. This would involve the hiring of personnel, including an experienced Animal Control administratorto oversee the program. The new administrator would also be able to work with the Animal Control Advisory Board in identifying specific service delivery tactics and hours of coverage. The County may be best served by: ❑ Hiring a new Animal Control Program Manager. ❑ The new manager and Animal Control Advisory Board develop a plan (and target date) for the takeover of field operations. ❑ A comprehensive, effective Animal Control ordinance is developed by the Advisory Board and the new program manager. ❑ Policies and procedures for the new program are developed. ❑ Forms and records are developed. ❑ Funding sources are secured; personnel hired and equipment purchased. ❑ Field takeover occurs. The Study Team advocates that Animal Control operations be managed under the Hawaii County Police Department, since the program's related functions involve enforcement activities. As you know, personnel is the greatest asset or liability of an Animal Control agency. Today's Animal Control Officer needs to be proficient in a number of skills. Animal Control administrators should employ individuals that posses or have the ability to learn those skills. The utilization of job descriptions will aid in the selection of potential employees. The Study Team can offer several sample job descriptions, upon request. In the judgement of the Study Team, several of the current HIHS field officers would be qualified (and probably eager) to transfer to the new program. The Study Team recommends that those employees be encouraged to apply for work in the new program. Community/Interagency Relations 9-20 Vehicles would also need to be purchased. Outside of wages, vehicle expense is the next greatest cost to any program. Vehicles are constantly in view of the public and they play a key role in the agency's image. The Study Team would be able to offer a list of vendors who manufacture Field Service Delivery Vehicles. Communications could be handled by the Hawaii County Police Department. Citizens should be able to call in animal -related complaints via a dedicated phone line(s) directly linked to the Police Department's dispatch center. The increase in call loads, however, may require additional dispatch personnel. Many Animal Control agencies utilize the same dispatching services and base equipment as their police department. All employees should be properly equipped and trained, and should wear professional Animal Control uniforms. The Study Team can provide a recommended list of equipment, areas of needed training and uniform vendors. A policy and procedure manual should also be developed; here again, the Study Team can offer sample policies/procedures upon request. The new administrator and field personnel could operate within the police department building or another designated area. Countv of Hawaii - Step 2 The County of Hawaii could continue to rely on a contractor for animal sheltering services. The County should enter into a new contractual arrangement with HIHS to secure shelter services. This contract could be based on the County's funded portion of shelter operations or by paying a flat -rate fee per impounded animal. The County should also offer increased oversight of shelter services. Sheltering is a very important part of Animal Control. It is the facility and landmark which projects the image of the organization and publicly displays the care given to living creatures. If the shelter is not maintained in a manner acceptable to the public, it will constantly be a source of ill will from the people the shelter serves. County of Hawaii - Step 3 It is impossible for government alone to control all pets within a community. If control is to be achieved, it must come from the voluntary efforts of the majority of the members of the community. Therefore, if any Animal Control agency expects the general public to support its ideals and goals, the public must have respect for that agency. No program is complete without a well-planned public education program. A good public education program can serve several purposes: Community/Interagency Relations 9-21 Ll Make pet owners aware of their responsibility to meet their animals' needs and to keep their animals under control. ❑ Sensitize people to the humane treatment of all animals, both wild and domestic. L) Let citizens know that the Animal Control program is there to assist with community pet problems. Q Inform people that animal laws will be enforced for everyone's benefit. 1:3 Teach children to be humane and responsible future pet owners. While the Study Team realizes that the HIHS may shift their focus more to humane -related activities (after the takeover occurs), it is important for the County of Hawaii to offer its own educational program and develop a relationship with the pet -owning community that has been lacking for quite some time. Conclusion In the Study Team's professional judgement, a takeover of field -related activities by the County of Hawaii would serve the best interests of the animals and taxpayers of this community. While the Study Team recognizes that pressures from outside interests are increasing, the County should not react too quickly in forcing this change. The Study Team recommends hiring a professional, Animal Control administrator to build the new program from the ground up. Then a progressive takeover of field operations could occur within the next budget year. Both the new program manager and the Animal Control Advisory Board would then have an opportunity to elevate Hawaii County's program as a leader of Animal Control departments in the United States. Citizen Comments The following is a summary of written or electronic correspondence received by the Study Team prior to, during, and after the on-site study. Some of these comments include complaints tracked by the Finance Department and forwarded to the Study Team for review. Unattended dogs; barking dogs; loose dogs; residents being attacked. Why can't more be done to curb the problem of dogs running loose?; why can't HIHS officers patrol and pickup strays more often?; HIHS should become more active in public education programs that teach responsible pet practices. Complainant was bitten by a dog; police officer who had taken the compliant never returned the victim's phone calls; HIHS never received a copy of the report so that a vicious dog citation could be issued; concerned that the system needs to work in enforcing leash laws and vicious dogs. Nothing but praise for HIHS; described complaints regarding neighborhood dogs and chickens; likes the trap program; feels that HIHS workers are underpaid; increased Community/Interagency Relations 9-22 funding is needed; improved education programs is also required. West Hawaii needs to handle animals for Kau H.O.V.E. or Kau needs their own shelter. Took 3'h days to get back lost dog (even though the owner had called HIHS several times, dog had been moved by cleaning person so front office did not think the dog was there as they had not seen him brought in). Kona shelter concerns: Drop-off boxes inhumane; need a 24-hour hotline, shelter should be open 7 days a week; need computer upgrades; should check animals for microchips; money for cattery should be returned and used for upgrades; foster care program; board certified vet; program for free spay/neutering; adoptable animals needs to be kept longer and better advertisement for those animals island wide. Need feral cat program; AJC needs to enforce the laws, especially the leash law; need education program; laws against animal cruelty; more ACO's. Dead animals left in streets; takes days to respond to emergencies -have to be forced by supervisors to do job; employees are lazy; need new leadership at HIHS. Conditions at the Waimea shelter described as "horrible"; complainant traps, neuters and releases feral cats at a local beach and surrounding areas; there is a lack of care and concern for animals atthe Waimea shelter; overcrowded conditions for animals; limited hours force citizens to use drop -boxes; drop -boxes do not protect animals from the elements. Fundraising money not used for improvements; volunteers using own money to treat sick/injured animals; wants HIHS removed from Kona shelter contract when it expires; need to do educational programs for community and schools; need vet at shelter to dispense meds; someone to monitor spay/neuter compliance. Dogs running loose; killing animals too quick upon arriving at shelter; feral cats; employees need to get off their butt; Board of Directors needs to be checked out. Vicious dogs running loose holding neighbors hostage. Urges review of HIHS; believes agency does not operate in an ethical, consistent and professional manner; lack of citations for redeemed animals; holding periods for cats are inconsistent; field trucks return to the shelter with trapped animals already euthanised; private funds are not used for facility improvements; volunteers quit in dismay; because of performance, HIHS should not receive taxpayer money. Leash law violations; A/C not enforcing laws for "dangerous and at -large animals." Dogs running loose; complainant must trap and pay to turn -in animal; A/C claims they can only give two verbal or written warnings, then complainant must trap animal. Terrible shelter conditions at Waimea shelter; no water for animals; no shelter attendant during posted hours; sick and injured animals not attended. Concerned about reports of lack of food, water, filthy cages and lack of personnel present during posted business hours at Waimea shelter. Filthy conditions at Waimea shelter; no attendant during posted hours; animals had no food or water. Horrible conditions at Waimea shelter; dead and dying cats in receiving cages; overcrowding; feral cat problem. Filthy conditions at Waimea shelter; staff shortage. Lost dog; shelter no help trying to locate owner. Community/Interagency Relations 9-23 Horrible shelter conditions at Waimea shelter. Killing all the cats as soon as they arrive at shelter. Dissatisfied with HIHS administration; lack of training for A/C; poor procedures. Need to enforce leash laws; too many dogs (especially aggressive) running loose. Dogs running loose in park, owners refusing to leash dogs in park and not picking up after them. Letter to Editor: HIHS killed cat, same day it was picked up (cat had owner, but no ID). Owner had called HIHS same day the cat had been taken to shelter—neighbor trapped cat not knowing it belong to other neighbor. Letter to Editor: Unattended dogs; barking dogs; loose dogs; residents being attacked. Pit bulls attack guide dog; owner cited numerous times; run out of town, only to return; no response from HIHS; police captain handling case as HIHS did not. Need to "tighten" leash laws; need to enforce vicious dog laws. Dog owner not picking up after his dog; HIHS did not show for court hearing over this matter. Cyclist attacked by dogs running loose. Dogs running loose; barking dogs; dogs chasing vehicles; need Enforcement! Need change in management; kittens should be offered soft food and should be monitored more closely. Terrible shelter conditions at Waimea shelter; most animals had no food or water; filthy cages. Says cats are being euthanised immediately upon arrival at shelter. Sad conditions at Waimea shelter; wonder why animals have to wait until noon for food and water—if they get any at all. Do not renew HIHS's contract when it expires. Hire the West Hawaii Humane Society. The following is a summary of comments received at the two public forums held during the on-site study. Public Meeting, June 6th Problem with HIHS's lack of field enforcement. Filed complaint about dog abuse issue. Wants County to regulate cats; neighbor has 12 cats; laws should protect property owners from cats, just like dogs. Barking dog complaint; neighbors have barking dogs and the P.D. won't respond to complaint. Friend wasn't allowed to adopt a pet from HIHS; HIHS should promote the adoption of all dogs, not just those that are "warm and cuddly', has basic ideological issues with the Humane Society of the United States and its service to the public. Why can't Humane Officers enter upon private property to investigate cruelty/neglect complaints?; need public dog parks. Barking dog complaint; lives near a pig hunter who has 12 dogs; animals bark in early A.M., disturbs sleep/rest; problem has been going on for years; needs problem addressed; should be a limit on the number of animals per household. No one on the island has ever been convicted of cruelty; how many notices must be given for home contact before a reaction is solicited? Community/Interagency Relations 9-24 HIHS shouldn't be called a humane society; field response needs to be improved; lack of enforcement regarding cruelty infractions; wants better enforcement; HIHS needs to be more humane; most animals are not tagged. Complainant had an injured dog, but HIHS wouldn't come out; incident happened on a Friday night; HIHS won't respond unless the animal is confined; HIHS response is not for helping animals. Public Meeting, June 8th Two owned dogs killed her friend's sheep; complainant is legally blind; wonders about having a seeing -eye dog without the enforcement of a leash law; fines for A/C do not need to go to the state; lack of leash laws and controls; HIHS should do more with education, especially children. County parks "loaded" with dogs running loose; HIHS is either not doing their job or there is not enough officers; horses should be maintained on land large enough to live on. HIHS needs to enforce leash laws; need a animal limit law in Ocean View; laws need to be stronger; people should be more responsible pet owners. Feral cats a problem - kill birds; County should implement cat licensing and regulation; County needs new code and contract - define responsibilities, educate public on issues. Police Department should not be annoyed with Animal Control problems; citations should not be used for education - cite them!; the 2 humane societies need to work together. Citizens need to follow the laws - animals get punished in the end. Visitor has been a volunteer at HIHS for the past 5 years; has seen a positive change; if the County wants a stronger program, they need to improve funding; would like to see increased funding for animal care. Visitor read statement of support for HIHS. Should enact a law prohibiting the feeding of wild dogs and cats. Visitor applied 3 times to be the Director of HIHS; has been a dog fancier for 30 years; HIHS could improve its management; employees need to be paid more; complainant observed incorrect IC injections 4 years ago; need increased funding for the program. Visitor has been a volunteer at HIHS for the past 2 years; HIHS has very little funding; some people refuse to spay or neuter their animals; Humane Officers work very hard; Ocean View needs an office; need a spay/neuter clinic in addition to the CAP program. Visitor has been visiting HIHS facility for 15 years; amount of animals they keep alive is less and less; HIHS should keep cats and kittens alive longer; agency should keep a higher percentage of healthy cats; citizens should be allowed to feed feral cats. Visitor had conflict regarding cat adoptions. ARCH representative; discussed ARCH programs and Maddie's Fund. Visitor feeds feral cats and maintains cat colony near old airport/dump; would like signs placed to ward -off animal abandonment. You never know what the shelter is like unless you visit. They have lots of cats! Visitor has been a volunteer at HIHS for 6 years; County should be more liable for the Community/Interagency Relations 9-25 program; Humane Officers work hard; program needs increased funding; HIHS should increase public education; HIHS needs a paid volunteer coordinator. Visitor disagrees that the HIHS volunteer coordinator position needs to be a paid position; both the West Hawaii Humane Society and HIHS need to work together; HIHS should increase the number of citations issued. Visitor is a local veterinarian; program needs increased funding; County has neglected program for years; priorities need to be reevaluated; need additional criteria for spay/neuter coupons (should be directed at only low-income families); what is Animal Control?; what is the HIHS?; feral cats versus endangered birds; need to increase focus on Animal Control. Need to increase fines for citations; need laws with severe penalties; fines should go back to the Animal Control program. Visitor adopted 3 dogs from HIHS; seems that the shelter is not as full now (only observed 1 dog to a cage recently); enforcement penalties is not the only answer; Animal Control needs to develop some innovative ways to enforce the laws. Visitor thanked NACA and the County for attempting to address problems; all animal welfare groups need to work together and back the recommendations of the NACA report. No easy decisions regarding the euthanasia of animals; the overpopulation problem is a community problem; education is the key! Island is over -saturated with animals; need to educate, encourage courts to penalize with community service (mandatory). Long-term animal impoundment is not the answer. Visitor has lived on the island for 30 years; field enforcement needs improvement; people need to get involved; feels that HIHS is based in Halo and neglects the other side of the island; citizens should contact Council Members and make them get involved. The following is a summary of comments received, either verbally, in writing or electronic format, by representatives of local animal welfare or other interest groups: Don't agree with the concept of P.D. taking over the entire operation. County won't invest money in its own shelter. What happened to the $30,000 left to HIHS for a cattery? Contract needs to be split and P.D. needs to administer contract. HIHS won't work with anyone. Believe that having 2 contracts would increase support from community (checks and balances between HIHS and WHHS). WHHS does not want cats regulated. WHHS favors the use of the carbon monoxide chamber. Terrible pet overpopulation problem on the island; need increased field and shelter services. Waimea shelter hours are too short; need increased morning and evening hours. Waimea shelter needs to be enclosed for climate control; too cold for animals. Community needs more education. Feral cat/dog population is a growing problem. Community/Interagency Relations 9-26 County should regulate cats. State can control the number of animals coming in (perfect for control). Strengths - Dedication of staff; do the best with what they've got; Executive Director has been a real strength. Weak - Need more staff; cruelty/neglect laws are weak; many citizens take it upon themselves to handle animal -related problems, but it is a public health problem. HIHS Board is remiss - needs to become more active. Everyone needs to work together; develop a positive attitude. Present management at HIHS needs to develop a more encompassing volunteer program. HIHS disapproved all adoptions by hunters. Most pig hunters take good care of their animals. Community really doesn't know what HIHS does (p/u dead animals & euthanize animals). Need a low-cost, no -cost, or paid program for spay and neutering. Expansion of current shelter availability through a) expansion of current shelters; b) network of small-scale sanctuaries; c) foster care network; d) expanded adoption program. Need a mobile veterinary van and veterinarian. Increase cooperation between HIHS and other animal advocacy organizations, such as in a foster -care program. Increase cooperation between the police and HIHS in addressing cruelty or similar cases to ensure prompt and trained responses. Expand educational programs to encourage spay and neuter. Create public spaces for safe and enjoyable animal activity (dog parks). Clearly mark areas to inform the public of areas where animals can be and under what conditions. Open parks to animals at special hours at parks where animals are generally prohibited. Need an efficient system of reuniting animals and companions, when animals are lost or otherwise separated. Need to address the inhumane tethering of animals. Displeased about animals left in the wild. Not enough community veterinarians to spay/neuter animals. Citizens deny they have a problem of too many animals (won't accept what's going on). The following is a summary of comments received, either verbally, in writing or electronic format, by representatives of local government. Increased amount of frustration in regards to more people and animals conflicting. Relationship with HIHS pretty good - positive attitude. Comfortable with how HIHS handles Animal Control. Suggests expanded hours/change of hours (need staffing when people are home). HIHS needs to be more proactive. HIHS understaffed and underfunded. Need more funding for spay/neuter and education. Need to funnel fines back to the program, not to the state. Everyone wants the problems associated with the program fixed. Community/Interagency Relations 9-27 All the animal welfare groups and government need to partner with each other to make the program work. County should look at a long-term contract with built-in increases based on performance. Need to streamline badging process or do away with it altogether. Citizen complaints are basically passed on to HIHS for a response. Need a model contract - Performance-based incentives; defined roles. The Finance Department cannot go out into the field to investigate HIHS complaints due to a lack of staffing. How practical is it for the Finance Department to administer the program? County should increase license fees, but maybe at a staggered level to minimize the effects of such an increase. Cats should be held as long as dogs. Officers need the power to cite when necessary and this should be left to the discretion of the reporting officer. Animal Control should be considered being placed under the Health Department or P.D. Placing Animal Control under the police department may push prosecutors to expedite cases and help bring owners into compliance in a more timely manner. HIHS must have the staff available to enforce the ordinances. An ordinance is only as good as the County and HIHS allows it to be enforced. By having Animal Control separate, this would allow A/C to do the enforcement part - public safety and health. HIHS could then adopt or rehabilitate animals and this could generate more donations. Police Department does not want to get involved. Community has a lack of confidence in HIHS. Need a partnership with everyone (police/HIHS/prosecutor). Need to set a date to perform training. Partnership with the Police Department would work better than them just taking it over. Home Rule is a challenge. County needs to challenge the HIHS Board to increase their vision. Length of contract should be extended. On-call problems at shelter. Lack of confidence in field program. Should annually set a date for badging; develop curriculum and training materials. Maybe add badging training to the police recruit classes? Judge's ignorance reflects the community's ignorance. HIHS needs certified cruelty investigators. HIHS should retain copies of its own citations. Feels that the Police Department has a good working relationship with HIHS. Doesn't want Police Department to take over Animal Control. The following is a summary of comments received, either verbally, in writing or electronic format, by current and former representatives of HIHS: Never had enough (money and staf). Citizens don't understand the whole picture. Community/Interagency Relations 9-28 Generally, people don't pay much attention to HIHS. Four different executive directors since 1990. Strengths - Great staff; fundraising; Keaau has a good crew; Shon is a strong officer; this is the best it's ever been; we have some good people. Weak - Code needs to be improved; never enough money; change -over in council requires a reeducation of Council Members every 2 years; staff underpaid; could have better facilities; need a volunteer coordinator; program underfunded; weak county laws regarding large animals; training should be a reward for performance; adult education is needed; cruelty cases should go to just 1 judge; need more staff, increase fundraising for education and spay/neuter; need areas for people to get acquainted with adoptable animals; county should provide vehicles. Dedicated board and staff. HIHS was overlooked by previous County administration. Strengths - Dedication of staff and Board Members. Weak - Response time; Waimea shelter needs expansion. Strengths - Staff has improved with Grayson; do great with what they have; have good communication with Police Department; dedication and commitment of staff; Grayson and his support have been a major improvement. Weak - Facility; need more money from County for spay/neuter; hours are not citizen friendly (need Sunday hours, increased telephone coverage). Citizens are not educated about spay/neuter advantages. HIHS can't keep everyone in the community happy. Need to get the facility "in shape" to be able to keep them clean. Strengths - Keaau staff, animal care and field; spay and neuter program; microchipping; education. Weak - Need more staff; need full-time educators; need another vet tech in Kona; increased rotation for euthanasia. Conflict with WHHS; they don't want to work with HIHS; always in conflict. County Council is becoming more sympathetic to HIHS concerns. Animal Control is a very low priority during County budget considerations. Council is more apt to let HIHS out on a limb when complaints come in. Need increased funding, more Humane Officers. County could take over the enforcement aspect, HIHS continues to run shelter. Need to convince the County that Animal Control is important (liability issues). The Mayor and Department of Finance have been very supportive. Contract issues - must reflect citizens needs for demands. Must pay a decent wage. More difficult to keep Kona employees. Little support from County Counsel in getting Humane Officers badged (feel that they don't think it is important). Would like to keep shelter operations, have P.D. take over enforcement. Budget needs to be addressed; do the best they can with what they have. No long-term goals or objectives set by the HIHS Board. County should license and control cats; does not agree with trap/neuter/release. Estimates that 500,000 to 1,000,000 cats on the island. Community/Interagency Relations 9-29 Should be limits on the number of animals per household. Executive Director appears to work well with government officials. The perfect humane society should be separate from A/C - government should handle that. Mixed emotions from community; as enforcers they need to be nice - not the bad guy. Would like the County to maintain its own facility. Cats are the primary reason why birds are endangered. Strengths - Adoption program; care of animals (Keaau); vaccinating animals; Staff Veterinarian; microchipping. Weak - Investigating abuse (not qualified to investigate, citing these people is an issue, who defines abuse?); need more testing for feline leukemia for older male cats. HIHS has a dedicated staff - does what's best for the animals. HIHS doesn't follow-up (regarding adoptions) with what happens to animals. Legitimate complaints are often ignored by HIHS. Should HIHS focus on sheltering to make sure its done right? Staff spends too much time defending themselves to citizens and WHHS. Public concerns - clean out kennels at times (kill animals). Is the HIHS placing its exempt status in jeopardy by subsidizing A/C? Likes the idea of R.D. handling enforcement; HIHS handling sheltering. Bad press of Animal Control overshadows HIHS efforts. Wants the best for animals and people - is HIHS spread too thin? Recommendations: 9.01 HIHS needs to increase its role and visibility within the community. The agency must cultivate and improve media relations by providing information relating to the positive aspects of the organization. The agency should take a more aggressive approach to public relations and "sell" the organization to the community on a continuing basis to increase support among taxpayers and improve its level of funding. Rating: 3 9.02 The agency should identify someone within the organization to coordinate educational services and speaking engagements (at the time of this study, both Community Program Coordinator positions were vacant). Such services should be promoted heavily within the community and initiated by HIHS. Rating: 3 9.03 HIHS employees (regardless of position or level) should be encouraged to participate in outreach programs. Rating: 3 9.04 The agency should develop and distribute information to the public relating to field and shelter services and ordinances. Rating: 3 9.05 An Animal Control Advisory Board should be established. The new Board should develop and implement its own goals and objectives. The Board should write its own by- laws, defining its purpose and specific goals. A "conflict of interest" statement should also be added to the Board's by-laws. New Animal Control Advisory Board members should be Community/Interagency Relations 9-30 provided training or instruction regarding their Board responsibilities. All roles and functions should be clearly defined. Rating: 3 9.06 HIHS and the new Advisory Board should develop a procedure in which to investigate citizen complaints/concerns regarding the HIHS staff or services. The purpose of this procedure is to build trust among the government and the community and to provide an impartial review of HIHS activities. Rating: 3 9.07 The County should consider reassigning the administration of the Animal Control contract to an agency that may be a more "natural fit" and possesses some knowledge of public safety and health issues, such as the Health Department or Police Department. Of course, the transfer of such responsibilities should include additional financial and administrative support, and training for those involved in this process. Rating: 3 9.08 The Study Team suggests that the feral cat trap/neuter/release issue should be researched and reviewed bythe new Advisory Board forfurther action. No Rating Assigned 9.09 Once manpower levels increase, it is suggested that cleaning personnel begin work at an earlier time (such as 7:00 a.m.), and that animal holding areas open at 10:00 a.m. and close at 6:00 p.m. On Saturday, all shelters could open at 10:00 a.m. and close at 4:00 p.m. The shelters could remain closed on Sunday. Rating: 3 9.10 The Study Team would recommend that the County, the new Animal Control Advisory Board and the contractor develop a long-term strategy that includes a new animal sheltering facility for the Kailua-Kona service area. In addition, consideration should also be given to adding an additional facility for southern County residents and an upgrade or new facility in the Waimea area. Rating: 1 9.11 While the Study Team sympathizes with HIHS regarding the moral dilemma of adopting out animals which may be exposed to possible injury, the Study Team believes that responsible pet owners, to include pig hunters, should not be excluded from the adoption process. Rating: 1 9.12 In the Study Team's opinion, the County of Hawaii maybe better served by pursuing other means of field service delivery, including abandoning the current operation and building a new field program from the ground up. It is the recommendation of the Study Team that the County of Hawaii should consider the establishment of an Animal Control enforcement division within the Hawaii County Police Department or the Health Department. Shelter services could continue to be outsourced to a local humane organization. Information regarding the proposed "takeover" of field operations may be found in this chapter under "Starting an Effective Animal Control Program. " Rating: 2 Communityllnteragency Relations 9-39 9.13 The Study Team would not recommend a division of current animal sheltering contract responsibilities until such time as the newfield program has been established. The issue of splitting shelter services may then be researched and reviewed by the new Advisory Board for any further action. No Rating Assigned Community/Interagency Relations 9-32 How Do Free -Roaming and Feral Cats Impact Humans d Animals? f AVMA Review Considers VVIiediel-TIVAR Programs Are feasible and Humane At s the problems faced by feral cats gain the attention of more and more shel- ters—and as the problems posed by feral cats garner greater public attention— researchers are beginning to take a closer look at the impact these animals have on the communities they inhabit. The Journal of the American Veterinary Medical Association (JAVMA) recent- ly published a review of previous studies that may help shelters and pub- lic officials reach more well-informed policy deci- sions. The review, entitled, "Free -roaming and feral cats—their impact on wildlife and human be- ings," evaluated the feasi- bility of trap -test -vacci- nate -alter -and -release (TTVAR) programs, one of the more widespread pro- posals for controlling, de- creasing, and eventually eliminating feral cat colonies. Author Gary Patronek, VMD, PhD, pored over past research on the topic and arrived at the follow- ing conclusions: N Of the more common zoonotic diseases spread NA Animal Sheltering/ May -June 1998 by free -roaming cats, ra- bies is the most worrisome from a public policy stand- point. Although there have been no human deaths in the United States attrib- uted to rabid cats, the dis- ease is diagnosed in cats more often than in any other domestic animal. In fact, health officials often oppose TTVAR programs because of rabies concerns and the enormous costs of postexposure treatment. Most TTVAR programs vaccinate cats against ra- bies only once, and some evidence shows that the mere presence of a colony may be inviting to rabid cats who can quickly spread the disease. 0 Among the other zoonoses of concern are plague, which has been spread from rodents to cats to humans; toxoplasmosis, which has been spread by free -roaming cats soiling water sources, and Lyme disease, which has been spread by infected ticks brought into the home by free -roaming cats. AV Many people believe free -roaming and feral cats hunt and kill an enormous number of songbirds and other wild animals, but few studies indicate any long- term effects, and many pro- vide evidence to the con- trary. According to Pa- tronek, humane agencies need to continue urging people to keep cats indoors for the safety of the cats and potential prey, but data seem to support the idea that TTVAR programs can be run without endangering populations of birds and other wild animals. (Of course studies that focus on populations of animals tend to overlook the suffering that may come to individual birds and other wild ani- mals, but a well-run TTVAR program aims to provide a humane solution for the greatest number of individual animals by elim- inating feral colonies through attrition). In fact, according to a U.S. Fish and Wildlife Study per- formed in the 1970s, 196 million bird deaths, or 1.9 percent of avian mortality, could be attributed to hu- man activities, whereas cats accounted for only 3.5 mil- lion bird deaths, a relative- ly negligible amount. Most of these deaths were limit- ed to a few species of birds, all of which maintained large populations. Another study per- formed on an island with "closed" populations found that up to 30 percent of sparrow deaths were due to cats (who primarily fed on smaller rodents). But the sparrow population had returned to its previ- ous level by the study's end. According to the study's author, even if the cats had been removed, another predator would have likely stepped in and preyed upon the same population. in another study, cats had quite an impact on vole popula- tions, but once the small rodents became scarce, cats sought different species and vole popula- tions soon rebounded. In urban areas the impact upon other animals is even less drastic, as few free - roaming cats hunt live prey, choosing instead to live off of refuse or food provided by humans. N In certain areas, under the proper conditions, TTVAR programs can be one part of a responsible approach to solving the problems posed by free - roaming and feral cats. Even this approach will fail, however, unless pet owners keep their own cats indoors to keep the colonies numbers from in- creasing. Any group con- sidering a TTVAR program must tailor an approach to the specific needs of the community because colonies differ from cli- mate to climate, and from urban areas to suburban and rural areas. Managed colonies should not be maintained near wildlife breeding areas, zoos, or habitats that are home to endangered species. In ad- dition, to minimize the risk of zoonoses, managed colonies must be kept away from water supplies, public parks, and gathering places. Meanwhile, animal - welfare groups must find a way to measure the health and well-being of free - roaming cats, a subject of- ten debated, though few published studies have yielded reliable or conclu- sive data. —SK nawaii County Ordinance Review National Animal 0 Contr®i Associati®n 1HF PROFFSSIONALS CHAPTER 10 HAWAII COUNTY ORDINANCE REVIEW Animal Control laws are the basis for an effective animal control program. Each aspect of the code serves a purpose whether it be control, compliance, education, or revenue generation. In order to offer these areas, I have included a draft code (Attachment A) that addresses many of the areas I referred to in my preliminary evaluation. A commentary on the original code is included as well (Attachment B). The draft code is crossreferenced to the existing code. The situation that exists in Hawaii County is extremely complex and will require changes in addition to a major code revision. The draft code attached is not meant as an immediate substitute for the current code; moreover, it is a blueprint for and overhaul of the existing document. This code is based on Commonwealth of Virginia Code; however, it encompasses all major areas needing attention. The Hawaii County Animal Code (HCAC) appears to be poorly organized and lacking in major areas such as definitions of terms and appropriate penalty levels. There are ample examples of attempts at piecemeal corrections that are reflected in the disparity between the penalty for poisoning a dog ($10 — 1980) and allowing a dog to stray more than three times ($500 or 100 hours of community service ---1995). Unfortunately these "corrections" seem to have accomplished more, rather than less, confusion. The changes also illustrate that the HCAC has sections that are over twenty years old. Animal care and control best practices have changed dramatically since 1980. Ideally, the chapter should begin with a mission statement that establishes the purpose for the code and the goals it hopes to obtain. The following are comments on various areas pointed out by the evaluation team. Many of the pratical defiencies are caused be a lack of direction in the HCAC. These recommendations are focused on creating the foundation for a modern, efficient animal services operation. Additionally, they can provide a start for benchmarking services by standardizing enforcement options. Animal Control Officer Standards Animal Control Officer training and empowerment should be part of the code. Minimum training standards and requirements are essential to providing a fair, comprehensive program. If animal control is not placed directly under a police agency, there area number of situations that can present liability problems due to inadequate training or lack of oversight. As mentioned under the Rule 19 procedures, there are a number of areas that the current Humane Officers must demonstrate competency to be "badged". There should be a training and procedures outline along with a certification that covers all necessary job functions. A sample training standard an lesson plan are included. (Attachment C §4.1-2) Hawaii County Ordinance Review 10-1 Animal Control Officer's Authority The enforcement section is consigned to "humane officers" who are not quite civilians but are certainly not law enforcement officers. The Special Study points out the failing that these types of officials uniformly suffer from — lack of training. Despite the best intentions and efforts, the code does not provide sufficient liability protection for the County or the HHS. Animal Control Officers should be designated within the code and the duties assigned to the appropriate law enforcement agency for administration. These officers should have specific training requirements outlined in the code and that training provided by the municipality. (See #1) Additionally, the ACOs should be under the direction of an Animal Services Supervisor. This individual should be able to perform all the duties of an ACO and have significant management and law enforcement experience. Animal Control Officers should be authorized to fully investigate animal cruelty and related acts. It appears that these agents are currently unable to conduct these investigations on private property or seize animals for other violations. ACOs should be authorized to seize any animal for a violation of County or State Codes. A checks and balances system can insure that animals are not seized gratuitously and persons are not deprived of their personal property without due process. ( § 4.1-2 ) Definitions The definitions in §4-1 HCAC should be expanded to include many of the common terms used in animal investigation and enforcement. Of the seven terms defined, two are repetitious ("stray" & "at large") and somewhat contradictory. Terms used later in the code ("dangerous", `fierce", and "humane officer") are not defined at all. A list of suggested definitions is included in the draft: code and covers many of the needed areas. All definitions used must be clear, concise and not contradict other definitions in the HRS or HCAC. Many of the current sections (Noisy dogs §4-24) are mostly definitions that would best be relocated to a consolidated definitions section. Additionally, the definitions should set the tone for the entire chapter by following the mission statement mentioned above. (§ 4.1-2 et al) Limits on Animals There should be limits on the number of animals owned or kept on property. This targets animal hoarders and puppy mills. Legitimate interests such as animal breeders and kennels can be accommodated by the use of permit procedures. Everyone that owns animals should be answerable to the cruelty codes and subject to reasonable inspections. In urban areas dogs, cats, and other domestic animals should be licensed and properly regulated. In rural areas, kennels should be allowed with proper oversight. A simple "grandfather" clause would permit all current animal owners to keep their pets as long as they comply with the license codes and continue to do so. ( § 4.1-8) Cruelty/ Laws A concerted effort to consolidate and revise the traditional cruelty to animals style sections within the code must be made. Currently the code only sets penalties for injuring or Hawaii County Ordinance Review 10-2 poisoning an animal ($10 fine), abandoning an animal, or giving an animal away as a prize ($500 fine). Bludgeoning, disemboweling, burning, maiming, torturing and other offenses that result in the death of the animal are not covered under the HCAC. These should be covered in the definitions as mentioned above and punishments commensurate with the offense imposed. Cruelty laws should be strengthened and clearly defined. Suggestions for these are covered in both the code section and the definitions. Both neglect (unintentional acts) and cruelty (intentional acts) are included. These definitions take the ambiguity out of the current code and allow for more complete enforcement of related violations. Animal cruelty charges should be investigated fully and this information shared with other agencies in law enforcement and alternately, child protection. ( § 4.1-78) Animal License Fees Animal license fees should be increased and the license requirement code should be enforced. Cats should be included in the license requirements (See #6) This may be accomplished by authorizing the ACOs to hand out 'unpaid invoices" instead of criminal tickets for these violations. The code needs to have an incentive program included to encourage animal spay/neuter. Increased license fees with large differentials is one method. It may be feasible to offer citizens a rebate or a bounty for each animal that is sterilized. This could be up to the amount of the one year unlicensed rate. Many cities have successfully implemented this with public support. Code requirements for people engaged in breeding for profit should be included in this section. Both functions can work together to reduce the number of animals abandoned and therefore handled by animal shelters. License procedures should be made as simple as possible under the code with license renewals allowed by mail and Internet. Multi-year licenses with discounts for altered animals are another incentive. (Article II § 4.1-50 et al) Stray Cats Stray cats appear to be a major problem for the County. The HCAC offers little in the way of control for the animal that is the largest single factor for animal control. As mentioned above, cats should be treated as other all other animals and have a standard license fees. The control ordinance should require that cats be maintained on the owner's property; however, it is not necessary to go as far as some localities that have instituted leash laws. Impoundment penalties should also track those for dogs. Cats should fall under a general nuisance code that allows for persons to be compensated for damage done by cats to personal property. ( § 4.1-79) Fees. Fines. and Penalties Unfortunately, all fines imposed revert to the State coffers instead of the local treasury where they could offset operational expenditures. This is a major problem. Some solutions include implementing a civil penalty or simple "charge" for non jail able offenses. Fines can be set in the code to handle first, second, and third offenses. These graduate penalties will hopefully have an impact on the recidivism rate and encourage compliance. As an alternative, animal obedience classes for pet and owner could be imposed instead of Hawaii County Ordinance Review 10-3 monetary penalties. The revision should also standardize the current fees charged for impoundment, licensing and fines. Again, most of these sections were last revised in 1980 and do not accurately allow for rising costs in animal boarding, veterinary care and administrative services. While license fees in progressive areas throughout the United States range from $15 - $75 for unaltered dogs, HCAC assesses only $6 for the same animal. The differential between altered and unaltered animals provides no incentive for owners to spay or neuter their pets. The costs related to caring for animals have likewise increased even if labor costs alone are factored in to the equation. Kennel attendants are uniformly underpaid; however, they still earn minimum wage. Veterinary costs have increased almost exponentially. Taking these issues into consideration, fees should be raised on impoundment ($25), boarding ($15), unaltered license ($50) and civil penalty fines ($100) for non -cruelty offenses. ( § 4.1-85) Adoptions and Holding Periods Another major revision needed is the departure from the "sale" of animals in favor of adoptions. This is another hold over from the 1980s. There should be an established code that defines how long an animal should be retained by the sheltering agency prior to being made available to a new owner. The new owner should be required to alter the animal and agree not to breed it prior to surgery. The new owner should be required to return the animal to shelter if it is no longer wanted as a pet and there should be substantial penalties for non-compliance. Holding periods for strays should be at least five days for animals without ID and ten days for animals bearing identification. There should also be a requirement that the ACO or shelter staff make a bona fide attempt to contact the owner of record and make note of that fact.( § 4.1-85) Nuisance / Barking Dods The nuisance code should be amended to allow for the confiscation of any animal that is posing a public nuisance. Essentially, any animal that barks for more than ten minutes in a sixty -minute time continuously may be confiscated. This allows the ACO some discretion but also give them wide latitude to correct these problems.( § 4.1-76) Code Review Codes need to be uniform and track the Hawaii Revised Statutes clearly. The animal code should be reviewed at least once per year to resolve any discrepancies caused by changes in state or other laws. Codes should be compared to insure internal consistency for both level of penalty and relevancy to other codes. Zoning codes should also be considered when making these reviews. The new code should accurately track the State laws regarding animal care and control. For example as mentioned in the Special Study, there are sections (notably the vicious animal sections) that do not match the Hawaii Revised Statutes. The HRS provides a uniform code for application statewide. It is unclear why or how the HCAC deviated from the guidelines established under state statutes; however, any competent attorney should be able to refute the HCAC in this specific area and obtain an Hawaii County Ordinance Review 10-4 outright dismissal of charges brought under this section. Special attention is needed to insure that discrepancies reoccur. The code should be organized into sections that follow a logical progression. Unlike the current code, the revised section should clearly outline all aspects of animal control operations. There should be a separate shelter operations section of the code should address the requirements for housing animals under contract. The animal shelter, as well as any private rescue groups, must conform to the highest standards of animal care and set the example for citizens to follow. Recommendations 10.01 A review of current County of Hawaii ordinances indicates a need for improvement. The new Animal Control Advisory Board, the County of Hawaii, HIHS and the community should work together to update its ordinances. Rating: 3 Hawaii County Ordinance Review 10-5 ATTACHMENT A For comparison, the following penalties apply in for these offenses. Class 1 Misdemeanor = Maximum 1 year jail $2500 fine Class 2 Misdemeanor = Maximum 6 months jail $1000 fine Class 3 Misdemeanor = Maximum $500 fine Class 4 Misdemeanor = Maximum $250 fine ARTICLE I. GENERAL PROVISIONS Sec. 4.1-1. Violations of chapter; penalties. Unless otherwise provided, a violation of any provision of this chapter shall constitute a class 1 misdemeanor. Each day's continuance of the violation shall constitute a separate offense. In addition to any penalties imposed by the court for any violation of this chapter, the court may require that restitution be paid to the county for any costs expended for investigation, handling, care, housing or medical care for the animals. Sec. 4.1-2. Definitions. The following words as used in this chapter shall have the following meanings: Abandon means to desert, forsake, or absolutely give up an animal without having secured another owner or custodian for the animal or by failing to provide the elements of basic care for a period of five (5) consecutive days. Adequate care or care means the responsible practice of good animal husbandry, handling, production, management, confinement, feeding, watering, protection, shelter, transportation, treatment, and, when necessary, euthanasia, appropriate for the age, species, condition, size and type of the animal and the provision of veterinary care when needed to prevent suffering or impairment of health. Adequate exercise or exercise means the opportunity for the animal to move sufficiently to maintain normal muscle tone and mass for the age, species, size, and condition of the animal. Adequate feed means access to and the provision of food which is of sufficient quantity and nutritive value to maintain each animal in good health; is accessible to each animal; is prepared so as to permit ease of consumption for the age, species, condition, size and type of each animal; is provided in a clean and sanitary manner; is placed so as to minimize contamination by excrement and pests; and is provided at suitable intervals for the species, age, and condition of the animal, but at least once daily, except as prescribed by a veterinarian or as dictated by naturally occurring states of hibernation or fasting normal for the species. Adequate shelter means provision of and access to shelter that is suitable for the species, age, condition, size, and type of each animal; provides adequate space for each animal; is safe and protects each animal from injury, rain, sleet, snow, hail, direct sunlight, the Hawaii County Ordinance Review 90-6 adverse effects of heat or cold, physical suffering, and impairment of health; is properly lighted; is properly cleaned; enables each animal to be clean and dry, except when detrimental to the species; and, for dogs and cats, provides a solid surface, resting platform, pad, floor mat, or similar device that is large enough for the animal to lie on in a normal manner and can be maintained in a sanitary manner. Under this chapter, shelters whose wire, grid, or slat floors (i) permit the animals' feet to pass through the openings, (ii) sag under the animals' weight, or (iii) otherwise do not protect the animals' feet or toes from injury are not adequate shelter. Adequate shelter for animals kept outdoors must comply with the following standards: (1) The shelter must be a well -constructed structure with a roof, enclosed sides, one of which must contain an entry way and a solid, level floor raised at least two (2) inches from the ground. The entryway openings shall not comprise an entire side of the structure. (2) The shelter must have no cracks or openings other than the entrance. (3) The shelter must be small enough to allow an animal to warm the interior of the structure and maintain body heat, but large enough to allow the animal to stand, turn and lie down. (4) Between November 1 and March 31 and whenever the real or effective temperature is forty-five (45) degrees Fahrenheit or lower, the entryway must be protected by a self- closing door, an offset outer door, or a flexible flap, and a sufficient amount of dry bedding material must be provided to insulate against cold and damp. (5) The shelter must be placed where it will be adequately shaded in hot weather and protected from the wind in cold weather. Adequate space means sufficient space to allow each animal to (i) easily stand, sit, lie, turn about, and make all other normal body movements in a comfortable, normal position for the animal and (ii) interact safely with other animals in the enclosure. When an animal is tethered, "adequate space" means a tether that permits the above actions and is appropriate to the age, size, and health of the animal; is attached to the animal by a properly applied collar, halter, or harness configured so as to protect the animal from injury and prevent the animal or tether from becoming entangled with other objects or animals, or from gaining access to public thoroughfares, or from extending over an object or edge that could result in the strangulation or injury of the animal; and is at least five (5) feet in length or three (3) times the length of the animal whichever is longer, as measured from the tip of its nose to the base of its tail, except when the animal is being walked on a leash or is attached by a tether to a lead line. When freedom of movement would endanger the animal, temporarily and appropriately restricting movement of the animal according to professionally accepted standards for the species is considered provision of adequate space. Provided, however, that no animal shall be tethered for more than twelve (12) hours in a twenty -four-hour period. Adequate water means provision of and access to clean, fresh, potable water of a drinkable temperature which is provided in a suitable manner, in sufficient volume, and at suitable intervals, but at least once every twelve (12) hours, to maintain normal hydration for the age, species, condition, size and type of each animal, except as prescribed by a Hawaii County Ordinance Review 10-7 veterinarian or as dictated by naturally occurring states of hibernation or fasting normal for the species; and is provided in clean, durable receptacles which are accessible to each animal and are placed so as to minimize contamination of the water by excrement and pests or an alternative source of hydration consistent with generally accepted husbandry practices. Adoption means the transfer of ownership of a dog or cat from a releasing agency to an individual. Adult dog or cat means any dog or cat over the age of four (4) months. Agricultural animal means all livestock and poultry. Ambient temperature means the temperature surrounding the animal. Animal means any nonhuman vertebrate species except those fish captured and killed or disposed of in a reasonable and customary manner. Animal control officer means the person employed, contracted, or appointed by the County of Hawaii who has attended training in animal welfare programs as recommended and/or certified by the Director of Finance pursuant to Rule 19, for the purpose of aiding in the enforcement of this law or any other law or ordinance relating to the licensing of dogs and cats, control of animals, cruelty to animals, or seizure and impoundment of animals, and who is appointed as special police officer and who meets the requirements of Hawaii Code. The term "animal control officer" shall also include his designee. Animal shelter means a facility which is used to house or contain animals and which is owned, operated, or maintained by a duly incorporated humane society, animal welfare society, society for the prevention of cruelty to animals, or other nonprofit organization devoted to the welfare, protection, and humane treatment of animals. Boarding establishment means a place or establishment other than a pound or animal shelter where companion animals not owned by the proprietor are sheltered, fed, and watered in exchange for a fee or barter. Collar means a well -fitted device, appropriate to the age and size of the animal, attached to the animal's neck in such a way as to prevent trauma or injury to the animal. Companion animal means any domestic or feral dog, domestic or feral cat, nonhuman primate, guinea pig, hamster, rabbit not raised for human food or fiber, exotic or native animal, reptile, exotic or native bird, or any feral animal or any animal under the care, custody, or ownership of a person or any animal which is bought, sold, traded, or bartered by any person. Agricultural animals, game species, or any animals regulated under federal law, as research animals shall not be considered companion animals for the purposes of this chapter. Hawaii County Ordinance Review 10-8 Consumer means any natural person purchasing an animal from a dealer or pet shop or hiring the services of a boarding establishment. The term "consumer" shall not include a business or corporation engaged in sales or services. Dangerous animal means a canine or canine crossbreed that has bitten, attacked, or inflicted injury on a person or companion animal, other than a dog, or killed a companion animal. Dealer means any person whom in the regular course of business for compensation or profit buys, sells, transfers, exchanges, or barters companion animals. Any person who transports companion animals in the regular course of business as a common carrier shall not be considered a dealer. Deputy animal control officer means any person who is appointed to assist the animal control officer in the performance of his duties who is appointed as a special police officer and who meets the requirements of Hawaii Code. Domestic animal means a dog or cat. Emergency veterinary treatment means veterinary treatment to stabilize a life-threatening condition, alleviate suffering, prevent further disease transmission, or prevent further disease progression. Enclosure means a structure used to house or restrict animals from running at large. Euthanasia means the humane destruction of an animal accomplished by a method that involves instantaneous unconsciousness and immediate death or by a method that involves anesthesia, produced by an agent that causes painless loss of consciousness, and death during such loss of consciousness as prescribed in state veterinary guidelines. Exhibitor means any person who has animals for or on public display, excluding an exhibitor licensed by the United States Department of Agriculture. Exotic animal means any live monkey (nonhuman primate), raccoon, skunk, wolf, wolf - canine hybrid, squirrel, fox, porcine, leopard, tiger, lion, panther, ratites, orany otherwarm- blooded animal, poisonous reptile, or nonpoisonous reptile six (6) feet or longer in length which can normally be found in the wild state or any other member of the crocodilian, including, but not limited to, alligators, crocodiles, caimans, and gavials. Ferrets, birds which are normally purchased through pet stores (with the exception of ratites), nonpoisonous reptiles less than six (6) feet in length, domestic rabbits and domestic rodents which have been bred in captivity and which never have known the wild shall be excluded from this definition. Exposure means any bite, scratch or other situation where saliva or central nervous system (CNS) tissue or fluid of a rabid animal or potentially rabid animal enters an open fresh Hawaii County Ordinance Review 10-9 wound or comes in contact with a mucous membrane by entering the eyes, nose or mouth. Groomer means a person who for a fee cleans, trims, brushes, makes neat, manicures, or treats for external parasites any animal. Housing facility means any room, building, or area used to contain a primary enclosure or enclosures. Humane means any action taken in consideration of and with the intent to provide for the animal's health and well being. Humane society means any chartered, nonprofit organization incorporated under the laws of the State of Hawaii and organized for the purpose of preventing cruelty to animals and promoting humane care and treatment of animals. Immediate threat means a situation or condition having a high probability that serious or severe or irreparable harm or injury to an animal is imminent, has already occurred, or may occur again if the animal is not protected from harm or the danger is not removed. Kennel means any establishment in which five (5) or more canines, felines, or hybrids of either are kept for the purpose of breeding, hunting, training, renting, buying, boarding, selling, or showing. Leashed or lead control means a suitable restraint no longer than twenty (20) feet in length and in good repair which is affixed to the collar, halter or harness of an animal and is held or controlled by a person capable of exercising adequate control over the animal. Livestock means one or more of the same species and includes all domestic or domesticated: bovine animals; equine animals; ovine animals; porcine animals; cervidae animals; capradae animals; animals of the genus Lama; ratites; fish or shellfish in aquaculture facilities; enclosed domesticated rabbits or hares raised for human food or fiber; or any other individual animal specifically raised for food or fiber, except companion animals. Other officer includes all other persons employed or elected by the people of Hawaii, or by any municipality, county, or incorporated town thereof, whose duty it is to preserve the peace, to make arrests, or to enforce the law. Owner means any person who: (i) has a right of property in an animal, (ii) keeps or harbors an animal, (iii) has an animal in his care, or (iv) acts as a custodian of an animal. Person means any individual, firm, owner, sole proprietorship, partnership, corporation, unincorporated association, governmental body, municipal corporations, executor, administrator, trustee, guardian, agent, occupant or other legal entity. !-Hawaii County Ordinance Review 10-10 Pet shop means an establishment where companion animals are bought, sold, exchanged, or offered for sale or exchange to the general public. Poultry includes all domestic fowl and game birds raised in captivity. Pound means a facility operated by the County of Hawaii, or any political subdivision, for the purpose of impounding or harboring seized, stray, homeless, abandoned, or unwanted animals; or a facility operated for the same purpose under a contract with any county, county, town, or incorporated society for the prevention of cruelty to animals. Primary enclosure means any structure used to immediately restrict an animal or animals to a limited amount of space, such as a room, pen, cage, compartment, or hutch. For tethered animals, the term includes the shelter and the area within reach of the tether. Properly cleaned means that carcasses, debris, food waste and excrement are removed from the primary enclosure with sufficient frequency to minimize the animals' contact with the above-mentioned contaminants; the primary enclosure is sanitized with sufficient frequency to minimize odors and the hazards of disease; and the primary enclosure is cleaned so as to prevent the animals confined therein from being directly or indirectly sprayed with a stream of water, or directly or indirectly exposed to hazardous chemicals or disinfectants. Properly lighted means sufficient illumination to permit routine inspections, maintenance, cleaning, and housekeeping of the shelter, and observation of the animal; to provide regular diurnal lighting cycles of either natural or artificial light, uniformly diffused throughout the animal facilities; and to promote the well-being of the animals. Public health officer means the director of public health or his designee. Quarantine means restriction of the activities of an animal that has been exposed or is suspected of being exposed to a communicable disease during a period of communicability or incubation to prevent further disease transmission. Such quarantines shall meet the criteria set forth by the director of public health or her designee in accordance with the current guidelines in the "Compendium of Animal Rabies Control" and the Hawaii Revised Statutes, as amended. Absolute or complete quarantine means the restriction of contact between exposed subjects and other animals and/or humans for a period of time not longer than the longest usual incubation of the disease. Modified quarantine means a selective, partial limitation of freedom of movement and contact between exposed and nonexposed humans and/or animal as deemed appropriate to prevent transmission of the disease. Releasing agency means a pound, animal shelter, humane society, animal welfare society, society for the prevention of cruelty to animals, or other similar entity that releases a dog or cat for adoption pursuant to Hawaii Code. Hawaii County Ordinance Review 10-11 Sanitize means to make physically clean and to remove and destroy, to a practical minimum, agents injurious to health. Sterilize or sterilization means a surgical or chemical procedure performed by a licensed veterinarian that renders an animal permanently incapable of reproducing. Treatment or adequate treatment means the responsible handling or transportation of animals in the person's ownership, custody or charge, appropriate for the age, species, condition, size and type of the animal. Veterinary treatment means treatment by or on the order of a duly licensed veterinarian. Vicious animal means an animal which has done any of the following: (1) killed a person; (2) inflicted serious injury to a person or animal, including multiple bites, serious disfigurement, serious impairment of health, or serious impairment of bodily function; (3) continued to exhibit behavior which resulted in a previous court or administrative finding that the animal is dangerous, provided that the owner or custodian had been given notice of such finding; or (4) has demonstrated a trend towards continually exposing humans to the potential of rabies as recorded through the rabies quarantine program administered by the Hawaii Department of Public Health. Weaned means that an animal is capable of and physiologically accustomed to ingestion of solid food or food customary for the adult of the species, and has ingested such food, without nursing, for a period of at least five (5) days. Sec. 4.1-3. Animal control officer and animal protection unit. In the department of police, there shall be the animal protection unit which shall be charged with the enforcement of the county ordinances and state laws relating to animals and shall manage the animal management center. All ordinances and laws relating to rabies and rabies control shall be enforced by the director of public health or his designee who may also designate the animal protection unit to enforce such ordinances or laws. All ordinances or laws relating to payment of animal license taxes shall be enforced by the animal protection unit as the county treasurer's designee. The animal protection unit shall also perform such other duties as are assigned to it by ordinance or by the county manager or by the chief of police. The animal protection unit shall be under the control and direction of the chief of police or his designee. There shall be designated in the unit an animal control officer. There shall also be designated in the unit deputy animal control officers who shall also be known as humane officers and who shall assist the animal control officer in inspection activities and enforcement of ordinances and laws relating to animals. Such animal control officer and deputy animal control officers shall have the power to arrest and issue summons within the county to any person found in the act of violating applicable local, state or federal regulation, law or ordinance related to animals. Hawaii County Ordinance Review 10-12 Sec. 4.1-4. County animal management center. (a) Any animal picked up or impounded by the animal protection unit and not immediately returnable to its owner or custodian shall be impounded by the county. The county animal pound shall be known as the animal management center and shall be accessible to the public at reasonable hours during the week for redemption of impounded animals. The county animal management center shall be under the control and direction of the chief of police or his designee. (b) Owners may release their animals for adoption or disposal at the county's animal management center upon completion of a release form and payment of the first day's impoundment fee. The chief of police or his designee may waive such impoundment fee. Release of an animal to the county's animal management center shall not be construed to be abandonment of the animal. (c) Animal carcasses may be brought to the county's animal management center for disposal. Disposal fees shall be set by the chief of police or his designee and shall cover the cost of incineration or other method of disposal. The chief of police or his designee may waive such fees. (d) Any person surrendering a live or deceased animal to the animal management facility for disposal shall certify that the animal has not exposed any person in the last twenty (20) days. Failure to truthfully certify shall constitute a class 1 misdemeanor. (e) The county may contract with one or more entities to perform this service. Sec. 4.1-5. Disposal of dead animals. The owner or custodian of any animal which has died from disease or other cause and is not the subject of a rabies exposure as defined in article III shall forthwith bury with at least twelve (12) inches of fill dirt flush with the ground surface, or sanitarily cause disposal of the same in accordance with guidelines set by the superintendent of waste management. If, after receiving written notice from the county, any owner or custodian fails to do so, the animal control officer or his designee, or other county official shall cause disposal of the animal, and may recover on behalf of the county from the owner or custodian the cost for this service. The carcasses of dead animals may be disposed of in accordance with procedures set by the superintendent of waste management, through the county animal management center, or through private vendors. In the event the owner or custodian of the animal cannot be ascertained, the property owner or occupant shall be responsible for disposal in accordance with this section. Sec. 4.1-6. Animal traps. (a) The animal protection unit shall maintain an inventory of various -sized live animal traps, which may be made available to the citizens of Hawaii for a period of up to seven (7) days. A further seven-day extension may be allowed at the discretion of the animal protection unit depending on current inventory, public demand, or citizen need. A deposit of twenty dollars ($20.00) shall be made with the animal protection unit for the use of any animal trap. When a trap is destroyed, lost or damaged through negligence, those persons responsible for the trap shall reimburse the county for the full cost of the repair or replacement of the trap. All animal traps shall be clearly marked with the owner's name and address. Hawaii County Ordinance Review 10-13 (b) Prior to utilizing any trap set for the capture of any wild or fur bearing animal, the person acquiring such trap mustfirst present any required permit issued bythe Department of Wildlife and Game pursuant to Hawaii Code and register with the animal protection unit. A permit is not required for capture of stray domestic animals, mice, rats or nuisance rodents upon a private property. (c) No person may interfere with the lawful use of an animal trap. This subsection will not apply to the animal control officer, deputy animal control officer, the director of public health or his designee, any county employee dealing with a trap placed upon county property without consent of the county, the fire chief or his designee, or a state or federal game warden. (d) Any violation of this section shall constitute a class 1 misdemeanor. Sec. 4.1-7. Keeping of certain animals within the county. (a) It shall be unlawful for any person to keep in any building or on any premises within the limits of the county any livestock or poultry without a permit issued by the director of public health. Such permit shall designate the location at which said animals shall be kept and the number of animals to be kept at said location. (b) It shall be unlawful for the owner or any person having charge or control of any livestock or poultry to permit said animals to be at large within the limits of the county. (c) The provisions of this section shall not apply to slaughterhouses lawfully operating within the county, authorized shows or exhibits, except regarding strays from the above - listed operations, licensed kennels, veterinarians, animal shelters or humane societies, licensed temporary exhibits, licensed pet shops or licensed/authorized training facilities. No other exceptions or exemptions to this section are authorized. Sec. 4.1-8. Limitation on keeping of dogs or cats. (a) No more than four (4) adult dogs and four (4) adult cats may be kept in any one dwelling unit or premises within the county limits. (b) Prior to <<Enacted Date>>, any person owning or having custody of more than the allowable number of dogs or cats shall apply for licenses for each adult dog or cat and such person shall not be charged with a violation of this section for the period which the licensed dogs or cats remain in the custody of such person. Only adult dogs or cats licensed by the owner or custodian prior to <<Enacted Date>>, shall be allowed over the limit set by this section. The owner or custodian may not transfer the exemption to other dogs or cats not specifically licensed prior to <<Enacted Date>>. Upon the death, loss or transfer of ownership of the licensed dogs or cats, the owner or custodian is prohibited from owning more dogs or cats than allowed by this section. (c) This section shall not apply to licensed kennels, veterinarians, animal shelters or humane societies, licensed temporary exhibits, licensed pet shops, kennels housing law enforcement animals, or licensed/authorized training facilities. No other exceptions or exemptions to this section are authorized. Sec. 4.1-9. Permits for companion pet dealers, grooming salons, pet shops, or sale of pets. (a) Any person operating a pet shop or grooming salon, operating as a dealer in Hawaii County Ordinance Review 10-14 companion animals, or offering for sale any companion animal, is required to obtain a permit from the animal control officer no later than January thirty-first of each year. Such permit will be renewable each January thirty-first thereafter subject to the approval of the animal control officer. The cost for each permit will be fifty dollars ($100.00) per year. (b) Any person obtaining a permit pursuant to this section will be required to maintain records as specified by the county on the application form. The animal control officer or public health officer will be allowed to inspect any facility at which the permittee is maintaining the animals without prior notice to the permittee. The permit shall be conspicuously displayed in an area of public view. (c) Applications and renewals for permits issued pursuant to this section may be denied by the animal control officer if the applicant or permittee has demonstrated fraudulent practices, inhumane treatment of animals, or violation of local, state or federal laws applicable to animals. An applicant may appeal any denial for permit or renewal to the animal welfare board of review as set forth in article VII. (d) A permit may be revoked after investigation and hearing by the animal control officer. The animal control officer will serve at least five (5) days' written notice of intent to revoke a permit on the permittee either in person or by posting of the notice to the front door of the facility where such animals are kept. A hearing will be held within ten (10) days of service of the notice. Testimony by the serving officer that notice was served upon the permittee or posted at the facility where the animals are maintained will constitute prima facia evidence of proper service. A permit may be revoked for fraudulent practices, inhumane treatment of animals, or a violation of local, state or federal laws applicable to animals. The animal control officer will provide written reasons for any determination of revocation within five (5) days of hearing. A permittee may appeal any decision of the animal control officer to the animal welfare board of review as set forth in article VII. (e) Any companion animal dealer, pet shop, grooming salon, or person who offers for sale any companion animal or who continues operation after revocation of their permit shall be guilty of a class 1 misdemeanor for each day of operation after revocation. Sec. 4.1-10. Prohibition of keeping or exhibiting of wild, exotic or poisonous animals within the county. (a) It shall be unlawful for any person to keep or exhibit or permit to be kept or exhibited upon any property within the county limits any wild, exotic, and/or poisonous animal without a permit from the animal control officer. In no case, however, shall any such wild, exotic, and/or poisonous animal(s) be exhibited, displayed, or kept in such a manner so as to permit said animal(s) to escape, be at large, or to otherwise come in direct physical contact with any person unless under the direct care and control of the handler. (b) The owner or custodian of any wild, exotic and/or poisonous animal shall apply to the animal control officer within ten (10) working days of acquisition of said animal, within ten (10) working days of becoming a new resident of Hawaii, within ten (10) working days of changing address within the county, or in the case of an exhibition (10) working days prior to the exhibition, for a permit authorizing the keeping of said animal within the county limits. Each applicant for a wild, exotic or poisonous animal permit shall by affidavit provide the following: Hawaii County Ordinance Review 10-15 (1) Name and street address of each owner(s)/custodian(s); (2) Location of animal(s) storage facility; (3) The common and scientific name of the subject animal(s); (4) The date of acquisition of each animal; (5) The source of acquisition of each animal; (6) The sex, age, height and/or length of each animal; (7) Any identifying marks or numbers unique to each animal; (8) A statement of understanding signed by the owner(s)/custodian(s) concerning human exposures in relation to the current state and local laws involving rabies control; (9) The current phone number and street address of owners)/custodian(s) and animal(s), if storage location differs from residence of owner(s)/custodian(s). (10) At least one emergency phone number where owners)/custodian(s) can be contacted in case of emergency. (c) The permit shall not be transferable and shall be valid through December thirty-first of the year of issue and shall be renewed by January thirty -firs of each subsequent year. Permits for temporary exhibit shall be valid for the time period specified in the permit. One permit per address will be required within the Hawaii County limits. On the permit shall be listed each animal held within the county limits as identified in subsection (b). The County of Hawaii's wild, exotic and/or poisonous animal permit shall be required in addition to any required federal or state permits. Information supplied on such permit shall be provided to relevant county departments as notification for public health and safety purposes. (d) It shall be unlawful to release any wild, exotic, and/or poisonous animal(s) into the wild. (e) The initial fee to cover the cost of the permit administration shall be twenty-five dollars ($50.00) per address. A charge of fifteen dollars ($25.00) will be collected for annual permit renewal, the adding of additional animals to an existing permit, or the duplication of an existing permit. (f) It shall be unlawful for any person to furnish false information for the purpose of obtaining a permit pursuant to subsection (b). Any permit obtained under fraudulent pretenses shall be null and void with any animals named thereon subject to impoundment by the animal control officer pending a determination by a court of competent jurisdiction as to the appropriate disposition of said animal(s). (g) Any person applying for a wild, exotic or poisonous animal permit shall provide evidence of surety bond or liability insurance in the amount of fifty thousand dollars ($50,000.00) which covers incidences or occurrences involving the wild, exotic or poisonous animals. (h) The animal control officer or his designee may reject an application for a wild, exotic or poisonous animal permit, renewal of a permit, or the addition of an animal to an existing permit for any of the following reasons: (1) Failure to comply with or supply any information required in subsection (b); or (2) Falsification of any information required in subsection (b); or (3) Previous or current violations of any provisions of this section; or (4) Previous or current violations of any local, state, or federal law relating to animals; or (5) The history or demonstration of a vicious or dangerous nature of an animal. Hawaii County Ordinance Review 10-16 Any person whose application is rejected pursuant to this subsection may appeal this decision to the animal welfare board of review as set forth in article VI I. (i) The animal control officer or his designee may revoke a wild, exotic or poisonous animal permit and impound the animals for any of the following reasons: (1) Failure to comply with the terms of this section; or (2) Falsification of any information required in subsection (b); or (3) Violation of any local, state or federal law applicable to animals. Any person whose permit is revoked pursuant to this subsection may appeal this decision to the animal welfare board of review as set forth in article VII. (j) The permittee shall post a placard provided by the animal control officer in an area of public view on any premises, building or structure where the wild, exotic or poisonous animal is kept or housed. Failure to post the placard shall be a violation of this section. Sec. 4.1-11. County as a bird sanctuary. (a) The entire area within the corporate limits of the County of Hawaii shall be a bird sanctuary for the protection of all birds, except starlings, pigeons and English sparrows. Signs stating that the county is a bird sanctuary may be erected in this county; provided, that the types of signs and locations thereof are first approved by the county manager. (b) It shall be unlawful for any person within the county to kill or injure any bird or to destroy or injure the nest or eggs of any bird, except starlings, pigeons (other than homing pigeons which are banded for identification) and English sparrows, and the nests or eggs thereof. (c) The animal control officer is hereby authorized to designate some member of the animal protection unit who shall, when so designated be then authorized to humanely remove or frighten from points of concentration on any property, any or all nuisance birds there harboring or concentrated. Sec. 4.1-12. Pigeons. (a) It shall be unlawful for any person to permit any pigeons, except homing pigeons, to fly at large within the limits of the County of Hawaii. The owner or occupant of the lot or premises upon which pigeons are kept or permitted to harbor shall be responsible for any violation of this section. (b) The concentration of pigeons constitutes a public nuisance in the county. The animal control officer is hereby authorized to designate some member of the animal protection unit who shall, when so designated, be then authorized to humanely remove or frighten from points of concentration on any property, any or all pigeons there harboring or concentrated. Sec. 4.1-13. Feeding of wildlife. It shall be unlawful to feed any native Hawaii wildlife within the county limits except in areas designated for that purpose. Secs. 4.1-14--4.1-49. Reserved. ARTICLE II. LICENSING OF DOGS AND CATS Sec. 6-1.50. License for dog or cat required. Hawaii County Ordinance Review 10-17 (a) It shall be unlawful for any person to own in the county a dog or a cat four (4) months old or older unless such dog or cat is licensed under the provisions of this article. New residents of the county must obtain the required dog or cat licenses within ten (10) days of bringing the animal into the county. (b) The first violation of this section shall constitute a class 4 misdemeanor. The second violation on the same animal shall constitute a class 3 misdemeanor. Subsequent violations on the same animal shall constitute a class 2 misdemeanor. Upon being found guilty of a third or subsequent violation related to the same animal, the court may also order the confiscation and the proper disposition of the animal. Sec. 4.1-51. License application. (a) A dog or cat license shall be obtained by a resident of the county by presentation of a written or oral application, evidence of current rabies vaccination and payment of the license tax to the county treasurer or his designee. The county treasurer shall only be authorized to license dogs or cats of resident owners or custodians who reside within the corporate county limits. Any owner or custodian making application for a license may be required to provide evidence of residency. Licensure of a dog or cat by another political subdivision or state will not act to relieve the resident owner or custodian of responsibility to obtain a license for the dog or cat in the county. (b) It shall be unlawful for any person to make any false statement in or present any false evidence with an application submitted under this section. Violation of this subsection shall constitute a class 1 misdemeanor. Sec. 4.1-52. Dog or cat license tax. (a) A license tax shall be imposed on all dogs or cats aged four (4) months old or older in the following manner: For each male, unneutered ... $50.00 For each male, neutered ... 5.00 For each female, unspayed ... 50.00 For each female, spayed ... 5.00 For each kennel, five - twenty animals ... $100.00 For each kennel, twenty one — fifty animals ... $250.00 (b) Any senior citizen may obtain a dog or cat license for neutered or spayed animals at a discount rate of two dollars ($2.00) per animal. No discount shall be given for unneutered or unspayed animals. Any person fifty-five (55) years of age or older shall be deemed to be a senior citizen upon proof of age. (c) A written veterinarian's certification showing that a dog or cat has been spayed or neutered shall be presented at the time of application to qualify for the lower tax. Failure to provide such certification shall result in imposition of the rate for unneutered or unspayed animals. Such certification shall indicate the species, breed, name, address and color of said animal and the name, address and signature of a licensed veterinarian. (d) No license tax shall be levied under this section on any dog that is trained and serves as a guide dog for a blind person, that is trained and serves as a hearing dog for a deaf or hearing impaired person, or serves as a service dog for a mobility -impaired person, or is a police or detection dog used by a local, state or federal enforcement Hawaii County Ordinance Review 10-18 agency. For purposes of this subsection, "hearing dog" is a dog trained to alert its owner by touch to sounds of danger and sounds to which the owner should respond. "Service dog" shall mean a dog trained to accompany its owner for the purpose of carrying items, retrieving objects, pulling a wheelchair or other such activities or service or support. (e) Any person giving false information in the procurement of a license pursuant to this section shall be deemed guilty of a class 1 misdemeanor. Sec. 4.1-53. When license tax is due and payable. The license tax imposed on dogs and cats in section 4.1-52 shall be due and payable as follows: (a) On or before January thirty-first of each year the owner of any dog or cat four (4) months old or older or any owner of a kennel shall pay the tax. (b) If a dog or cat shall become four (4) months old or older and come into the possession of any person between January first and November first of any year, the license tax for the current year shall be paid within ten (10) working days of the date of possession. (c) If a dog or cat shall become four (4) months old or older and come into the possession of any person between November first and December thirty-first of any year, the license tax for the succeeding calendar year shall be paid within ten (10) working days of the date of possession and the owner of such animal shall be protected from prosecution. (d) Licenses for the forthcoming year shall be available for purchase November first of the preceding year. Sec. 4.1-54. Failure to pay license tax when due. (a) It shall be unlawful for any person to fail to pay the dog or cat license tax when such tax is due. Payment of the license tax subsequent to a summons to appear before a court for failure to pay within the time required shall not operate to relieve such owner from the penalties provided for such failure. (b) The first violation of this section shall constitute a class 4 misdemeanor. The second violation on the same animal shall constitute a class 3 misdemeanor. Subsequent violations on the same animal shall constitute class 2 misdemeanors. Upon being found guilty of a third or subsequent violation related to the same animal, the court may also order the confiscation and the proper disposition of the animal. Sec. 4.1-55. Issuance, composition and contents of license. (a) Upon receipt of a proper application and the prescribed license tax, the county treasurer or his designee shall issue a license; provided that no such license shall be issued for any animal unless there is presented to the county treasurer or his designee a current rabies certificate for such animal. (b) Each license shall consist of a license tax receipt and a metal tag. Such receipt shall have recorded thereon the amount of the tax paid, the name, address and telephone number of the owner or custodian of the animal, the date of payment, the year for which the license was issued, the serial number of the tag, a general description including color, sex, name and breed of the animal, and whether the animal has been neutered or spayed. Hawaii County Ordinance Review 10-19 The metal tag issued hereunder shall be for the calendar year for which issued and shall bear a serial number. Sec. 4.1-56. Preservation and exhibition of license receipt; tag to be worn by dog or cat, exceptions. (a) Animal license receipts shall be carefully preserved by the owner or custodian and exhibited promptly on request for inspection by the animal control officer, any deputy animal control officer, and police officer or public health officer. Dog or cat license tags shall be securely fastened to a substantial collar by the owner or custodian and worn by such animal. The owner of a licensed animal may remove the collar and license tag required by this section when a dog or cat is: (1) Engaged in lawful hunting; (2) When a dog or cat is competing in a licensed or permitted show; (3) When the dog or cat has a skin condition diagnosed by a licensed veterinarian which would be exacerbated by the wearing of a collar and such is stated in writing and signed by the veterinarian making the diagnosis; or (4) When the dog or cat is confined within the owner's or custodian's dwelling unit. (b) Any dog or cat not wearing a collar bearing a license tag of the proper calendar year shall be deemed to be unlicensed, and in any proceedings under this section, the burden of proof of the fact that such dog or cat has been licensed or is otherwise not required to bear a tag at the time shall be on the owner of the animal. (c) Violation of this section shall constitute a class 4 misdemeanor. Sec. 4.1-57. Removal of tag. It shall be unlawful for any person, except the owner, custodian, or any law enforcement officer, the animal control officer, deputy animal control officer, or special police officer, to remove a legally acquired license tag from a dog or cat. Violation of this section shall be a class 1 misdemeanor. Sec. 4.1-58. Duplicate tags. If a dog or cat license tag shall become lost, destroyed or stolen, the owner or custodian shall at once apply to the county treasurer or his designee for a duplicate tag, presenting the original license receipt. Upon affidavit of the owner or custodian, before the county treasurer or his designee, that the original license tag has been lost, destroyed or stolen, the county treasurer or his designee shall issue a duplicate license tag, which the owner or custodian shall immediately affix to the collar of the animal. The county treasurer or his designee shall endorse the number of the duplicate and the date issued on the face of the original license receipt. The fee for a duplicate tag shall be one dollar ($1.00). Sec. 4.1-59. Substations and agents for collections of taxes and issuance of licenses and requirement for surety bonds. The county treasurer may establish substations in convenient locations in the county and appoint agents for the collection of dog and cat license taxes and issuance of dogs and cat licenses and may require surety bonds from said agents for the faithful performance of their duties including the payment to him of collected taxes. Appointed agents shall be Hawaii County Ordinance Review 10-20 entitled to a one -dollar ($1.00) handling fee per license to be deducted from the cost of the tax imposed by section 4.1-52 in accordance with procedures established by the county treasurer. ARTICLE III. RABIES CONTROL Sec. 4.1-60. Rabies vaccination or inoculation of cats, dogs and ferrets. (a) It shall be unlawful for any person to own, keep, hold or harbor any cat, dog or ferret over the age of four (4) months within the county limits unless such cat, dog or ferret shall have been vaccinated with a vaccine licensed by the U.S. Department of Agriculture (USDA) as recommended in the current "Compendium of Animal Rabies Control," prepared by the National Association of State Public Health Veterinarians, Inc. If, however, the requirement of vaccination or inoculation threatens the physical well-being of such cat, dog or ferret, the owner or custodian of such animal shall have a certificate signed by a licensed veterinarian certifying the same; and the owner shall provide a copy of the signed veterinarian certificate to the county's animal protection unit. A copy of such certificate will be forwarded to the director of public health within one (1) working day of receipt by the animal protection unit. The owner or custodian of a dog, cat or ferret shall furnish upon request of an animal control officer, deputy animal control officer, humane investigator, law enforcement officer or official of the public health department, the current certificate of vaccination for such animal. (b) Any person transporting a cat, dog or ferret into the county from another jurisdiction shall immediately conform with the provisions of this section. (c) The first violation of this section shall constitute a class 4 misdemeanor. The second violation on the same animal shall constitute a class 3 misdemeanor. Subsequent violations on the same animal shall constitute class 2 misdemeanors. Upon being found guilty of a third or subsequent violation related to the same animal, the court may also order the confiscation and the proper disposition of the animal. Sec. 4.1-61. Rabies vaccination or inoculation certificate and collar tag. (a) A suitable and distinctive collar tag and certificate of rabies vaccination or inoculation certifying that the animal in question has been vaccinated or inoculated shall be issued to the owner or custodian at the time of vaccination or inoculation. The collar tag shall be securely affixed to the cat's, dog's or ferret's collar and shall be worn at all times when the animal is not confined within the owner's or custodian's dwelling unit. Proof of rabies inoculation or vaccination in the form of a written certificate must be produced when requested. (b) A certificate of rabies vaccination or inoculation issued under this section shall mean either: N.A.S. P.H.V. form #50; or veterinary clinic computer printout; or handwritten invoice signed by a veterinarian, any of which must show all of the following: (1) Owner's name; (2) Owner's telephone number; (3) Owner's address; (4) Species dog, cat or ferret; (5) Sex of animal; (6) Age of animal; Hawaii County Ordinance Review 10-21 (7) Size of animal; (8) Breed of animal; (9) Colors of animal; (10) Name of animal; (11) First three (3) letters of the vaccine producer's name; (12) Duration of vaccination: one-year or three-year; (13) Vaccination serial (lot) number; (14) Date of vaccination; (15) Rabies tag number; (16) Veterinarian's license number; and (17) Veterinarian's, or authorized representative's, signature. Such certificate shall certify that the cat, dog or ferret has been properly vaccinated with animal rabies vaccine licensed by the U.S. Department of Agriculture as recommended in the current "Compendium of Animal Rabies Control," prepared by the National Association of State Public Health Veterinarians, Inc. All veterinarians doing business in the county shall provide monthly a copy of any issued certificate of rabies vaccination or inoculation to the animal protection unit. Sec. 4.1-62. Authority to investigate. Notwithstanding any of the provisions of this chapter, it shall be the duty of the director of public health or his designee to investigate any report of an animal having caused an exposure to any person or another animal to its saliva or mucous membranes in the county. The director of public health or his designee shall ensure that all quarantine procedures defined by the current "Compendium of Animal Rabies Control" issued from the Office of Epidemiology, Hawaii Department of Health, and the Hawaii Comprehensive Animal Laws are carried out as necessary to prevent the spread of rabies or other epidemiological animal diseases. Sec. 4.1-63. Report of animal or human exposure. (a) It shall be the duty of the animal control officer, any deputy animal control officer, any police officer, any veterinarian, emergency service attendant, any private physician, any hospital, any urgent care facility or any other person having knowledge of an animal exposure to a human, to report it within one working day after its occurrence to the director of public health or his designee. (b) It shall be the duty of any person who has knowledge of the existence of a suspected rabid animal, or an animal exposed to a suspected rabid animal, to immediately report the existence and whereabouts of such animal to the animal protection unit who will then notify the director of public health or his designee. Sec. 4.1-64. Notice of exposure and access to animal; concealing or harboring such animal to prevent investigation or destruction. (a) The director of public health or his designee shall notify the owner or custodian of an animal suspected of exposing any person or animal or having been himself exposed to a potentially rabid animal. Once notified of the suspected exposure, any person failing to contact the director of public health or her designee within one working day shall be in Hawaii County Ordinance Review 10-22 violation of this section. Each subsequent day's failure to contact the director of public health or his designee shall be a separate offense. Notice to the owner or custodian will be deemed adequate if executed in any of the following manner: by telephone or facsimile communication; by delivery or posting of notice at the owner's or custodian's last known address; by delivery or oral communication to any other resident of the owner's or custodian's home or a family member over the age of sixteen (16) years; or posting at the location of the exposure (when no address or telephone number can be obtained). Testimony of the issuing official as to the manner of service of the notice will constitute prima facia proof of service. (b) The owner or custodian of any animal reported to have exposed a person or other animal shall give the director of public health or his designee prompt access to the animal at any time as may be necessary for verification of quarantine or as may be required to prevent the spread of rabies and thereby safeguard human life. Any owner or custodian of an animal for which a notice has been issued concerning an exposure and who thereafter fails to provide prompt access to the animal shall be guilty of a violation of this article. (c) It shall be unlawful for any person to evade or elude the director of public health or his designee or to dispose of, conceal, harbor, or remove from the county any animal to keep the animal from being quarantined, destroyed or confined in accord with this article. Sec. 4.1-65. Quarantine of animals suspected of rabies. (a) Any animal suspected of having rabies, showing active signs of rabies, or having been exposed to a suspected rabid animal shall be inspected by the director of public health or his designee and may be ordered confined under such conditions as the director of public health or his designee determines are necessary to safely quarantine and observe the animal. If the director of public health or his designee determines that such animal can not be safely and appropriately confined under the owner's or custodian's control, the director of public health or his designee may cause such animal to be impounded at the county animal management center facility or other appropriate facility. The owner or custodian of the animal shall bear the expense of such quarantine for a period between one day and six (6) months unless sooner released by the director of public health or his designee. (b) Any animal quarantined pursuant to this section shall be so kept as to be available for inspection by any duly authorized officer of the department of public health or the animal protection unit and such quarantined animal shall not be removed or released or destroyed by any person or agency from the place of quarantine without the express consent of the director of public health or his designee. (c) In the event an animal in quarantine needs to be relocated the owner, custodian, or other person undertaking the relocation shall notify the director of public health prior to the relocation occurring. Failure to so notify shall be a violation of this section. Sec. 4.1-66. Confinement or destruction of animal bitten by rabid animal. Any animal suspected of being infected with the rabies virus shall be destroyed immediately in accordance with guidelines approved by the state veterinarian or confined in a pound, kennel or enclosure approved by the director of public health or his designee Hawaii County Ordinance Review 10-23 for a period not to exceed six (6) months at the expense of the owner or custodian. If the exposed animal has evidence of a current vaccination, the animal shall be revaccinated within one working day of notification and confined to the premises of its owner or custodian for the period of time determined by the director of public health or his designee in accordance with the current "Compendium of Animal Rabies Control" issued from the Office of Epidemiology, Hawaii Department of Health. Sec. 4.1-67. Destruction of animals known or suspected to have rabies. It shall be the duty of any person owning or having custody of any animal declared rabid by a currently licensed veterinarian, in writing, to immediately sign over to the animal control officer said animal. In addition, the director of public health or his designee shall have authority to direct the confiscation and destruction of any animal suspected to have rabies. The animal control officer working with the representative of the director of public health, shall carry out disposition of the animal in accordance with state directives and guidelines. Detailed written records shall be maintained in the animal control officer's and public health rabies control records. Sec. 4.1-68. Animal dying during quarantine. If any animal shall die while it is quarantined pursuant to the provisions of this article and such animal is known to have exposed another animal or person at any time during a period of two (2) weeks immediately preceding such death, it shall be the duty of the owner or custodian of such animal to immediately contact the director of public health or his designee and obtain instructions for the testing and/or disposal of the body. Sec. 4.1-69. Rabies clinics. The director of public health is hereby authorized to periodically, but not less than once a year, review the need for reduced cost neighborhood rabies clinics to encourage citizens to comply with County Code sections requiring the vaccination of dogs, cats and ferrets against rabies. The director shall base his decision to authorize such clinics upon the availability of veterinarian services to citizens. The director of public health may authorize reduced cost rabies clinics for citizens at which rabies vaccinations shall be administered by a veterinarian, duly licensed in the Commonwealth of Hawaii, and conducted in accordance with the current "Compendium of Animal Rabies Control" and local, state and federal law. Sec. 4.1-70. Declaration of rabies emergency. When sufficient evidence exists to believe that a rabid or potentially rabid animal is at large within the corporate county limits or surrounding cities, the director of public health or his designee may undertake any actions necessary to immediately contain and prevent the spread of rabies within the county. This action requires the immediate cooperation of other county agencies in the abatement of the emergency situation. County council may pass an emergency ordinance (which shall become effective upon passage) which shall require owners and custodians of dogs and cats to keep the same confined upon their premises unless under leash and under the control of the owner or custodian so as not to subject their animals to contact with the rabid animal. Hawaii County Ordinance Review 10-24 ARTICLE IV. OFFENSES REGARDING ANIMALS Sec. 4.1-71. Use of animals as prizes or inducements. No person shall give away any live vertebrate animals as a prize for or as an inducement to enter any contest, a game or other competition or as an inducement to enter a place of amusement or offer such vertebrate as an incentive to enter into any business agreement, whereby the offer was for the purpose of attracting trade. Sec. 4.1-72. Allowing animals to defecate on public property or on private property of other persons. It shall be unlawful for any owner or person in control of any animal to allow any animal to defecate on the property of other persons without their consent or that of the authorized agent or persons having control of the premises or on public property. Immediate removal and sanitary disposal of the defecated matter shall not constitute a violation of this section. The defecated matter shall be placed in a container and disposed of in a proper waste receptacle. A violation of this section shall constitute a class 3 misdemeanor. Sec. 4.1-73. Dead or disabled animals. (a) It shall be unlawful for any person to place, cast, or throw any dead animal into a street, road, waterway, or other public place, to knowingly permit any dead animal to remain unburied upon his property, to retain custody of any maimed, diseased, disabled or infirm animal, or leave it to lie or be in a street, road, or public place. (b) Violation of this section shall constitute a class 3 misdemeanor. Sec. 4.1-74. Animals riding in open vehicles. (a) It shall be unlawful for the operator of any motor vehicle to place or keep an animal in any portion of such vehicle that is open in such a manner so as to permit such animal to jump out of or escape the vehicle or to be thrown from the vehicle by acceleration or stopping of the vehicle or by an accident involving the vehicle. The prohibited portions of a motor vehicle shall include, but not be limited to: (1) The open bed of a truck or upon a motorcycle; or (2) The rear storage portion of a vehicle with the tailgate, trunk or hatchback portion open or down. For the purposes of this section, the operator of a motor vehicle shall be deemed to have control of any animal found therein. (b) The provisions of this section shall not apply to. - (1) o:(1) Any person who operates a motor vehicle in which an animal is secured in a cage or carrier of adequate design and shape to protect the animal and prevent its escape; (2) Any animal which is properly secured; or restrained, or tethered. (3) Law enforcement animals. (c) Violations of this section shall constitute a class 2 misdemeanor. Sec. 4.1-75. Abandonment of animals. Any person who abandons any dog, cat or other domesticated animal in any public place including the right-of-way of any public highway, road or street or on the property of another shall be guilty of a class 2 misdemeanor. Hawaii County Ordinance Review 10-25 Sec. 4.1-76. Nuisance animals. (a) It shall be unlawful for any owner or custodian of an animal to fail to exercise proper care and control of his animal to prevent it from becoming a public nuisance. Excessive, continuous or untimely barking, molesting of passersby, chasing vehicles, attacking other domestic animals, or trespassing upon school grounds or trespassing upon private or public property shall be deemed a nuisance. For the purposes of this section, a dog shall be deemed to be barking continuously if it barks for a period of ten minutes without cessation during a sixty -minute period. (b) Any person owning or having in his possession or under his control any female dog or cat in estrus shall exercise proper care and control over such animal to prevent it from becoming a nuisance. Allowing said animal to be at large or to be tied or confined outside so as to attract other animals shall constitute a nuisance. (c) It shall be unlawful for any person to carry or wear any live snake or reptile in public unless such snake or reptile is securely placed in an acceptable animal carrier so as to prevent escape or injury to the snake or reptile, another animal or a human being. (d) Any person owning or having in his possession or under his control any animal constituting a nuisance shall be given five (5) working days' notice to appear before the animal control officer to show cause why such animal should not be confined, disposed of or removed, or the nuisance otherwise abated. If, after investigation, the animal control officer finds that such animal is a public nuisance the animal shall be either confined, spayed/neutered, disposed of or removed or the nuisance otherwise abated. A written determination shall be provided to the owner or custodian of the animal. The owner or custodian may appeal the animal control officer's decision to the animal welfare board as set forth in article VII. (e) All costs related to any impoundment of nuisance animals shall be the responsibility of the owner or custodian of the animal. Sec. 4.1-77. Failure to perform duties of ownership; penalty. (a) An owner or custodian of an animal shall provide for each of his animals all the following: (1) Adequate feed; (2) Adequate water; (3) Adequate shelter that is properly cleaned and sanitized; (4) Adequate space in the primary enclosure forthe particulartype of animal depending upon its age, size, species, and weight; (5) Adequate exercise; (6) Adequate care, treatment, and transportation; and (7) Veterinary care when needed or to prevent suffering or disease transmission. (b) The provisions of this section shall also apply to every animal shelter, pound, dealer, pet shop, exhibitor, kennel, groomer, and boarding establishment. This section shall not require that animals used as food for other animals be euthanized. (c) The animal control officer, law enforcement officer or special police officer, may enter any facility listed in subsection (b) during the facility's normal working hours to inspect for compliance with the provisions of this chapter or related laws. (d) Game and wildlife species shall be cared for in accordance with regulations Hawaii County Ordinance Review 90-26 promulgated by the Hawaii Department of Game and Inland Fisheries. (e) Violation of this section shall constitute a class 3 misdemeanor. The second violation on the same animal shall constitute a class 2 misdemeanor. A subsequent violation on the same animal shall constitute a class 1 misdemeanor. Upon being found guilty of a third or subsequent violation related to the same animal, the court may order the confiscation of and the proper disposition of the animal. Sec. 4.1-78. Cruelty to animals. (a) It shall be unlawful and shall constitute cruelty to animals for any person to: (1) Override, overdrive, overload, torture, ill-treat, abandon, willfully inflict inhumane injury or pain not connected with bona fide scientific or medical experimentation, or cruelly, maliciously or unnecessarily beat, maim, mutilate, or kill any animal, whether belonging to himself or another; (2) Deprive any animal of necessary sustenance, food, drink, medical care, or shelter; (3) Willfully set on foot, instigate, engage in, or in any way further any act of cruelty to any animal; (4) Carry or cause to be carried in or upon any vehicle, vessel or otherwise any animal in a cruel, brutal, or inhumane manner, so as to produce imminent threat of harm, torture or unnecessary suffering; or (5) Cause, permit or allow any of the above. (b) A person found guilty of cruelty to animals may be ordered by a court not to own an animal within the county limits for a period of two (2) years from the date of conviction. Prosecution for violations of this section shall commence within five (5) years after commission of the offense. Prosecutions of this subsection regarding agricultural animals shall commence within one year after commission of the offense. (c) Nothing in this section shall be construed to prohibit the dehorning of cattle. Sec. 4.1-79. Animals at large. (a) It shall be unlawful for the owner, custodian or other person in charge or control of any animal to permit or allow such animal to be at large within the county limits or to negligently fail to prevent such animal from being at large within the county limits. Animals are prohibited from being at large in trailer coach parks, mobile home parks, and apartment complexes and must be maintained in accordance with lease provisions. This section does not apply to law enforcement animals. (b) For the purpose of this section, an animal is deemed to be at large while roaming, running, flying or self -hunting off the property of its owner or custodian and not under the owner's or custodian's immediate leashed or lead control or secured in an appropriate animal carrier. An owner or custodian of an animal which has completed a certified off leash obedience class may acquire an animal off -leash permit from the animal control officer. The animal control officer shall require proof of such class. The owner or custodian shall carry said permit when the animal is off the owner or custodian's premises. Said permit shall not be needed when the animal is confined within an area designated by the county manager for having animals off leash. The requirements of this subsection relating to leash control shall not apply to cats. (c) Animals are prohibited at public swimming pools. Animals are prohibited on public Hawaii County Ordinance Review 10-27 school grounds without the written permission from the school administration or the principal. (d) Any animal picked up or detained by any county employee or on county property at any time shall become the custodial property of the county. If, after a five-day period commencing the day after it is impounded, the owner does not redeem an animal, the animal shall become the property of the county for disposition, except that certain wildlife or non-native species may be delivered to the zoological park for proper care and disposition. The zoological park may retain such animals for display, exchange or may be reintroduced to the wild if such action is appropriate. (e) The first violation of this section shall constitute a class 4 misdemeanor. The second violation on the same animal shall constitute a class 3 misdemeanor and subsequent violations on the same animal shall constitute a class 2 misdemeanor. Any owner cited for 3 violations of this section, may have his animals impounded or spayed and neutered at the owner or custodian's expense. Costs for spaying or neutering shall be borne by the owner or custodian. Sec. 4.1-80. Dangerous animals. (a) It shall be unlawful for any person to keep, harbor or maintain within the county a dangerous animal as defined in this chapter, without a dangerous animal registration certificate from the animal control officer. (b) The owner or custodian of any animal found to be a dangerous animal shall obtain a dangerous animal registration certificate from the animal control officer. Such registration shall be obtained within ten (10) working days of the determination. The fee for such registration shall be fifty dollars ($50.00) in addition to other fees that may be authorized by law. The registration certificate shall be renewed annually. If the owner or custodian of an animal found pursuant to this section to be a dangerous animal is a minor, the custodial parent or legal guardian shall be responsible for obtaining the necessary certificates and complying with the terms of this section. (c) The animal control officer shall provide the owner or custodian with a tag that identifies the animal as a dangerous animal. The owner or custodian shall affix the tag to the animal's collar and ensure that the animal wears the collar and tag at all times. f=ailure to display the tag as required herein shall constitute a violation. (d) All certificates or renewals which are required to be obtained under this section shall only be issued to persons eighteen (18) years of age or older who present satisfactory evidence of all of the following: (1) The animal's current rabies vaccination and that the animal has been spayed or neutered; (2) That the animal is and will be confined in a proper enclosure or is and will be confined inside the owner's residence or is and will be muzzled and confined in the owner's fenced -in yard until the proper enclosure is constructed. Such enclosure shall be a secure and locked structure of sufficient height and design to prevent escape or direct contact with or entry by minors, adults or other animals. Such structure shall provide the animal with shelter from the elements of nature; (3) That the owner's residence is and will continue to be posted with clearly visible signs warning both minors and adults of the presence of a dangerous animal on the property; Hawaii County Ordinance Review 10-28 (4) That the animal shall be kept muzzled and on a leash in such a manner as not tc cause injury to people, other animals or itself whenever the animal is off the owner's property; (5) That the animal has been permanently identified by a means of a tattoo on the inside thigh or by electronic implantation, or other appropriate method; and (6) That the owner will immediately upon learning of any of the following incidents, notify the animal control officer or his designee: if the animal: a) is loose or unconfined; b) bites a person or attacks another animal; c) is sold, given away or dies; or d) has been moved to a different address. Failure to perform each of the above items, shall constitute a violation of this section. (e) No animal shall be found to be dangerous for any of the following reasons: (1) Solely because it is a particular breed or species; (2) If the injury, damage or threat was sustained by a person or animal that was at the time: a. Committing a crime upon the premises occupied by the owner or custodian; or b. Committing a willful trespass or other tort upon the owner or custodian's premises; or C. Provoking, tormenting, or physically abusing the animal or can be shown to have repeatedly provoked, tormented abused or assaulted the animal in the past; or d. A law enforcement animal that is engaged in the performance of its duties at the time of the acts. (f) The finding of any court as to the guilt of the owner or custodian of the animal under the provisions of this section shall not be construed in any way to affect the decision of the court as to the disposal of the animal in cases where the court may consider disposal advisable. Where an animal is dangerous without the knowledge of the owner, the court may orderthe animal destroyed without penalizing the owner. The owner or custodian shall bear the cost of impoundment and disposal of such animal. (g) Notwithstanding the provisions of this chapter, upon the hearing or trial of any person charged with owning or having custody of a dangerous animal, the animal welfare board or the court in its discretion may find the person not guilty of this section, but guilty of nuisance animal section 4.1-76. Sec. 4.1-61. Vicious animal. (a) It shall be unlawful for any person to keep, harbor or maintain within the county a vicious animal as defined in this chapter. (b) No animal shall be found to be vicious for any of the following reasons: (1) Solely because it is a particular breed or species; or (2) If the injury, damage or threat was sustained by a person or animal who was at the time: a. Committing a crime upon the premises occupied by the owner or custodian; or b. Committing a willful trespass or other tort upon the owner's or custodian's premises; or C. Provoking, tormenting, or physically abusing the animal or can be shown to have repeatedly provoked, tormented abused or assaulted the animal in the past; or d. A law enforcement dog that is engaged in the performance of its duties at the time Hawaii County Ordinance Review 10-29 of the acts. (c) Any animal found to be a vicious animal shall be euthanized in accordance with the appropriate state code provisions. (d) The finding as to the guilt of the owner or custodian of the animal under the provisions of this section shall not be construed in any way to affect the decision of a court as to the disposal of the animal in cases where the court may consider disposal advisable. Where an animal is vicious without the knowledge of the owner, the court may order the animal destroyed without penalizing the owner. The owner or custodian shall bear the cost of impoundment and disposal of such animal. (e) Upon trial or hearing of any owner or custodian charged with a violation of this section, animal welfare board or the court, in its discretion, may find the owner or custodian not guilty of this section but guilty of dangerous animal section 4.1-80. Sec. 4.1-81.1. Procedural requirements to obtain summons for dangerous and vicious animals. Any animal control officer or any deputy animal control officer who has reason to believe that a canine or canine crossbreed within the county is a dangerous or vicious animal as defined in this chapter shall apply to a magistrate of the county for the issuance of a summons requiring the owner or custodian, if known, to appear before the general district court at a specified time. The summons shall advise the owner or custodian of the nature of the proceeding and the matters at issue. The animal control officer shall confine the animal until such time as evidence shall be heard and a verdict rendered. If the animal control officer determines that the owner or custodian can confine the animal in a manner that protects public safety, he may permit the owner or custodian to confine the animal until such time as the evidence is heard and verdict rendered. The court hearing the case, through its contempt powers, may compel the owner, custodian or harborer of the animal to produce the animal. If after hearing the evidence, the court finds that the animal is a dangerous animal, the court shall orderthe animal's owner or custodian to comply with the provisions of section 4.1-80. If after hearing the evidence, the court finds that the animal is a vicious animal, the court shall order the animal euthanized pursuant to the requirements of section 4.1-81(c). ARTICLE V. AUTHORITY FOR SEIZURE, IMPOUNDMENT, RECLAMATION AND DISPOSITION OF ANIMALS Sec. 4.1-82. Authority to impound animals found within county limits. (a) The animal control officer is hereby authorized to seize and impound any animal suspected of: (1) Suffering a direct or immediate threat to its life, safety or health which the owner or custodian has failed or refused to remedy; (2) Being abandoned or at large; (3) Being cruelly treated; (4) Being unlicensed; (5) Being used for gaming or other illegal activity; (6) Being a dangerous animal in violation of section 4.1-80; (7) Being a vicious animal in violation of section 4.1-81; Hawaii County Ordinance Review 10-30 (8) A violation of section 4.1-8; (9) A violation of section 4.1-10; or (10) A violation of any other state or federal law or regulation concerning animals. (b) Any animal seized pursuant to this section shall be impounded at the animal management facility or at another county designated facility. Animals requiring specialized veterinary or other care may be impounded at another county designated facility. Any expense incurred in seizure or impoundment including but not limited to boarding, veterinary care, or license fee, shall become alien on the animal impounded and must be discharged before the animal is released from the facility. The county shall not be required to hold the seized animal for a period longer than thirty (30) days from the date of the seizure unless a bond as provided for in section 4.1-94 has been posted. In the event no bond has been posted, at the expiration of the thirty -day period, the animal may be disposed of. Sec. 4.1-83. Notice and hearing for temporary impoundment and notice for seizure. (a) Written notice of the impoundment of any animal seized pursuant to section 4.1-82 will be given to the identifiable owner or custodian of the animal at the time of seizure. If the owner or custodian is not on the premises from which the animal is seized, notice shall be posted upon the door or other structure in plain view. If such owner or custodian can not be located or identified, written notice shall be given to any family member or person sixteen (16) years old or older residing at the owner's or custodian's last known address; by posting of the notice at the owner's or custodian's last known address or at the site of the seizure; or by delivery or facsimile to the owner's or custodian's last known place of employment. (b) The written notice of the seizure shall contain the following information: (1) The time, date and place of the hearing; (2) Basic identification of the animal seized; (3) A written statement of the factual circumstances for seizing and impounding the animal; (4) Notice of the owner's or custodian's financial obligation for the board, necessary medical care, and costs incident to seizure of the animal and that a lien may be placed against the owner or custodian for such costs; and (5) Notice of the owner's right to surrender all property rights to the seized animal and thereby avoid incurring further costs after such surrender. (c) A seizure hearing shall be conducted by the animal control officer as soon as practicable after the seizure but in no event earlier than forty-eight (48) hours after the seizure notice has been issued. The purpose of the seizure hearing is to determine whether such animals should continue to be impounded or whether such animal can be safely returned to the owner, custodian or other interested party before final disposition of any suspected violation of state, federal or local law pursuant to which such animal was impounded. The owner or the custodian shall be permitted to attend the hearing to present information concerning the violation. (d) The animal control officer may make either of the following determinations within five (5) working days of the seizure hearing regarding the continued necessity of impounding the seized animal: Hawaii County Ordinance Review 10-31 (1) The seized animal(s) can be returned to the owner, custodian or other individual under the conditions set by the animal control officer for one of the following reasons: a. The owner or custodian has provided evidence to the animal control officer that such owner or custodian can provide adequate care, for the seized animal or any number of seized animals pending the court hearing on any violation related to the animal(s) in a manner in which will ensure public safety. Animals will be returned to their owner or custodian upon payment of the boarding, medical care, and license fees incurred during seizure and impoundment by the county and upon bail set for the safe keeping of the animal(s) pending the trial of the criminal matters. Any animal returned pursuant to this subsection will be required to be kept in the county limits and available for inspection by the animal control officer until any criminal matter has concluded; or b. Another interested party has provided adequate evidence of ownership of the animal(s) and can provide adequate care, for the animal(s) in a manner which will ensure public safety; or C. A private veterinarian or kennel facility will continuously board the animal(s) at the owner's or custodian's expense pending the conclusion of any criminal matters. Such veterinarian must be appropriately licensed to board animals and must provide written agreement to board such animal(s) under the conditions set by the court. Seized animals will be released to such a private veterinarian or kennel facility upon payment by the owner or custodian of all boarding, medical care, license and related seizure expenses incurred by the county and arrangement by the owner or custodian to have such animal transported to the boarder. Failure to pay the private veterinarian or kennel facility shall constitute a violation of the conditions of the pre-trial release of the animal(s) by the court. All expenses due to the boarder shall be a private matter between the owner or custodian and the boarder. The county shall not be held responsible for any such costs. (2) The seized animal(s) cannot be returned to the owner or custodian and should be retained by the county or other authority for boarding or other disposition for one of the following reasons: a. The owner or custodian has not provided adequate evidence that the animal(s) seized can be safely returned to the owner or custodian pending the final disposition of any criminal violations related to such animal(s); or b. The owner or custodian will be incarcerated and unable to provide for the animal(s); or C. The owner or custodian has not appeared at the seizure hearing after notice was given or posted upon the premises; or d. The animal(s) seized will require veterinary treatment, care or rehabilitation beyond the abilities of the county's animal management center or other facility to provide pending the court hearing on any violation related to the animal(s) and the owner or custodian has not provided evidence of the ability to provide adequate care for such animal(s) and to ensure public safety; or e. Such animal(s) comes under the jurisdiction of state or federal laws related to endangered or prohibited animal(s); or f. The animal(s) is prohibited within the jurisdictional limits of the county. (e) Nothing in this section shall prohibit the immediate humane destruction or euthanasia of any seized animal which is unweaned, critically ill or injured, suspected of Hawaii County Ordinance Review 10-32 being rabid, or which attacks another person or animal while being seized or impounded. Sec. 4.1-84. Disposition of vicious and feral animals found at large. Any vicious or feral animal found at large in the county which, because of its disposition or diseased condition, is too hazardous to apprehend may be destroyed when so ordered by the animal control officer. Sec. 4.1-85. County animal pound; confinement and disposition of stray animals. (a) All stray animals seized by the animal control officer shall be impounded at the county animal management center or other designated facility. The owner or custodian of the animal shall be responsible for all costs of seizure, impoundment, board and veterinary care for the seized animal. Such costs shall become a lien against the owner or custodian and must be discharged prior to release of the animal. (b) It shall be unlawful for any person to harbor or keep a stray or an ownerless animal for more than forty-eight (48) hours without notifying the animal protection unit. All stray animals found by any person within the county limits shall be brought to the county animal management center for confinement and disposition within ten (10) days. Anyone bringing such an animal to the county animal management center will be allowed to claim such animal after the holding period provided such animal is not determined to be a health or safety hazard. Impoundment and boarding fees shall be waived for such person upon payment of the adoption fee and agreement to abide by the spay and neuter agreement requirements. Violation of this subsection will constitute a class 4 misdemeanor. (c) An animal confined pursuant to subsection (a) shall be kept for a period of not less than five (5) days, such period to commence on the day immediately following the day the animal is initially confined in the facility, unless sooner claimed by the rightful owner thereof. The animal control officer shall make a reasonable effort to ascertain whether the animal has a collar, tag, license, tattoo, or other form of identification. If such identification is found on the animal, the animal shall be held for an additional five (5) days, unless sooner claimed by the rightful owner. If the rightful owner of the animal can readily be identified, the animal control officer shall make a reasonable effort to notify the owner of the animal's confinement within the next forty-eight (48) hours following the confinement. (d) if the rightful owner claims the animal prior to the expiration of the holding period, such owner shall be charged the actual expenses incurred in impoundment and keeping of the animal. Any person claiming to be the owner of an impounded animal shall provide adequate proof of ownership prior to redeeming the animal. It shall be unlawful for any person to present false evidence of ownership in order to redeem or gain possession of an impounded animal. Violations of this subsection shall constitute a class 1 misdemeanor. (e) The fee for redeeming an animal shall be fifteen dollars ($15.00) for the first twenty- four (24) hours or any part thereof and ten dollars ($10.00) per day thereafter to cover the cost of maintaining and safekeeping the animal. Fee for large livestock or animals requiring special handling shall be fifteen dollars ($15.00) per twenty-four (24) hours plus any transportation, boarding and other fees incurred by the county in keeping such animals. Owners or custodians of an impounded animal shall be responsible for any medical cost related to such animal. Said fees may be waived at the discretion of the animal control officer. Hawaii County Ordinance Review 10-33 (f) If any animal confined pursuant to this section is not claimed by its rightful owner upon expiration of the holding period, such animal shall be deemed abandoned and will become the property of the county. If such abandoned animal did not bear any form of identification when delivered to the animal management center, such animal may be humanely destroyed or disposed of by: (1) Sale or gift to a federal agency, state -supported institution, agency of the commonwealth, or agency of another state, provided that such agency, or institution is not engaged in animal research and agrees to confine the animal for an additional period of not less than five (5) days; (2) Delivery to any humane society or animal shelter within the commonwealth; (3) Adoption by any person provided the animal is spayed or neutered prior to adoption; (4) Adoption by a resident of a neighboring political subdivision of the commonwealth; or (5) Delivery, for the purposes of adoption or euthanasia only, to a humane society or an animal shelter located in and lawfully operating under the laws of another state, provided that such humane society or animal shelter: a) maintains records which would comply with Hawaii Code; b) requires that adopted dogs and cats be sterilized; and c) has been approved by the State Veterinarian or his designee as a facility which maintains such records, requires adopted dogs and cats to be sterilized, and provides adequate care and euthanasia. If such abandoned animal did bear a form of identification when delivered to the animal management center, such animal may be humanely destroyed or disposed of only by the methods set forth in paragraphs (2) through (5) above. (g) No provision herein shall prohibit the immediate destruction of a critically injured or critically ill animal for humane purposes. Any animal destroyed pursuant to the provisions of this section shall be euthanized by one of the methods prescribed or approved by the State Veterinarian. Neither shall any provision in this section prohibit the immediate destruction, for humane purposes, of any animal not weaned, whether or not the animal is critically injured or critically ill. (h) Nothing in this section shall prohibit the immediate destruction or disposal by the methods listed in subsection (g) of an animal that has been delivered voluntarily or released to the county animal management center by the animal's rightful owner after the rightful owner has, in writing, surrendered all property rights in such animal and has read and signed a statement which: 1) certifies that no other person has a right of property in the animal; 2) certifies that the animal has not exposed any person in the last twenty (20) days; and 3) acknowledges that the animal may be immediately euthanized or disposed of by the methods listed in subsection (g). ARTICLE VI. MANDATORY STERILIZATION OF DOGS AND CATS ADOPTED FROM COUNTY ANIMAL MANAGEMENT CENTER Sec. 4.1-86. Sterilization of adopted dogs and cats. (a) Every new owner of a dog or cat adopted from the county animal management center shall cause to be sterilized such dog or cat pursuant to the agreement required by subdivision (2) of subsection (b) of this section. (b) A dog or cat shall not be released for adoption from the county animal management Hawaii County Ordinance Review 90-34 center unless: (1) The animal has already been sterilized; or (2) The individual adopting the animal signs an agreement to have the animal sterilized by a licensed veterinarian (a) within thirty (30) days of the adoption, if the animal is sexually mature, or (b) within thirty (30) days after the animal reaches six (6) months of age, if the animal is not sexually mature at the time of adoption. (c) The animal control officer may extend for thirty (30) days the date by which a dog or cat must be sterilized on presentation of a written report from a veterinarian stating that the life or health of the adopted animal may be jeopardized by sterilization. In cases involving extenuating circumstances, the veterinarian and the releasing agency may negotiate the terms of an extension of the date by which the animal must be sterilized. (d) Nothing in this section shall preclude the sterilization of a sexually immature dog or cat upon the written agreement of the veterinarian, the animal control officer or his designee, and the new owner. (e) Upon the petition of the animal control officer to the general district court, the court may order the new owner to take any steps necessary to comply with the requirements of this article. This remedy shall be exclusive of and in addition to any civil or criminal penalty that may be imposed under this chapter. (f) Violations of subsection (a) or (b) of this section shall constitute a class 4 misdemeanor. (g) Any person giving false information in the adoption of an animal pursuant to this section including misrepresentation of spaying or neutering shall be guilty of a class 1 misdemeanor. Sec. 4.1-87. Sterilization agreement. The agreement pursuant to subsection (b) of section 4.1-86 shall contain: a. The date of the agreement; b. The names, addresses, and signatures of the releasing agency and the new owner; C. A description of the dog or cat to be adopted; d. The date by which the dog or cat is required to be sterilized, and e. A statement printed in conspicuous, bold print, that sterilization of the dog or cat is required under this article; that a person who violates this article is subject to a criminal penalty; and that the new owner may be compelled to comply with the provisions of this article. Sec. 4.1-88. Sterilization confirmation. Each new owner who signs a sterilization agreement shall, within seven (7) days of the sterilization, cause to be delivered or mailed to the animal control officer written confirmation signed by the veterinarian who performed the sterilization. The confirmation shall describe the dog or cat; include the new owner's name and address; certify that the sterilization was performed; and specify the date of the procedure. Violations of this section shall constitute a class 4 misdemeanor. Sec. 4.1-89. Notification concerning lost, stolen or dead dogs or cats. If an adopted dog or cat is lost or stolen or dies before the animal is sterilized and before Hawaii County Ordinance Review 10-35 the date by which the dog or cat is required to be sterilized, the new owner shall, within seven (7) days of the animal's disappearance or death, notify the animal control officer of the animal's disappearance or death. Violations of this section shall constitute a class 4 misdemeanor. Sec. 4.1-90. Exemptions to mandatory sterilization The provisions for mandatory sterilization shall not apply to: a. An owner reclaiming his dog or cat from the county animal management center; b. The disposal of an animal by sale or gift to a federal agency, state -supported institution, agency of the commonwealth or agency of another state. Sec. 4.1-91. Releasing agency; fees and deposits. (a) The animal control officer may charge and collect from the new owner a fee or deposit before releasing a dog or cat for adoption to ensure sterilization. (b) The rates for such fees shall be clearly posted at the county animal management center. (d) Said fees may be waived by the animal control officer. (d) All fees forfeited for failure to sterilize any animal, adopted from the animal management center shall be nonrefundable and shall be deposited into a special fund for care and treatment of animals held at the animal management center. ARTICLE VII. ANIMAL WELFARE BOARD OF REVIEW Sec. 4.1-92. Creation of animal welfare board. (a) For the purposes of hearing appeals as provided by this chapter of the Hawaii County Code, there is hereby established in the county a board to be called the animal welfare board of review. Such board shall consist of five (5) members: the chief of police or his designee; the director of public health or his designee; and the superintendent of the Hawaii Zoological Park or his designee; and two (2) citizens appointed by council. Members of the animal protection unit or the department of public health's rabies team may not serve on the board. (b) The chief of police or his designee shall serve as the chairperson of the animal welfare board of review. (c) Three (3) concurring votes shall be necessary for a decision by the animal welfare board of review at any hearing or meeting. The board may establish rules and regulations for its own procedures. Sec. 4.1-93. Appeals to the board. (a) Appeal to the animal welfare board of review may be taken of any decision by the animal control officer denying a permit required by this chapter, revoking a permit issued pursuant to this chapter, or the impoundment of any animal pursuant to this chapter. Notice of appeal shall be in writing and filed with the animal control officer within five (5) days of said decision. The animal control officer shall forward such appeal, along with a copy of his decision and all papers pertaining thereto, to the animal welfare board of review within two (2) working days of receipt. (b) The animal welfare board of review, after hearing, may affirm, modify or reverse the Hawaii County Ordinance Review 10-36 decision of the animal control officer. The board shall act within ten (10) working days of receipt of the notice of appeal. Every decision shall be final, subject to such remedy as any aggrieved party might have at law or at equity. Such decision shall be in writing and shall indicate the vote on the decision. Every decision shall be filed in the office of the chief of police, shall be open for inspection and a copy thereof delivered to the appellant. (c) The animal(s) which constitute the subject of the appeal will remain impounded by the animal control officer pending the decision of the board and any appeal to a court of competent jurisdiction. The owner shall bear the cost of board and care of any animal impounded. Sec. 4.1-94. Posting of bond for boarding of animals. (a) Any owner or custodian of an animal seized and impounded by the animal control officer for violations of this chapter shall post a bond, cash or surety for the cost of impoundment, boarding and medical costs of any animal which is held for longer than ten (10) days after impoundment. The bond shall be for a period of thirty (30) days. (b) Such bond or security shall not prevent the animal control officer from disposing of such animal at the end of the thirty -day period covered by the bond or security unless the person claiming an interest posts an additional bond, cash or corporate surety, with the county treasurer to secure payment of reasonable expenses for additional thirty -day periods and does so prior to the expiration of the previous thirty -day period. (c) The amount of the bond shall be determined by the animal control officer based on the current rate for board and medical condition of the animal as determined by the animal control officer. (d) At the conclusion of the case, the bond shall be forfeited to the county unless there is a finding that the owner is able to adequately provide for such animal and is a fit person to own the animal. If the animal is returned to the owner or another individual despite a violation of this chapter, the person posting the bond will be entitled to receive the bond less the incurred costs of boarding, medical care and impoundment of the animal. (e) If a cash bond is paid to the county treasurer and a judicial determination is made that the owner or custodian was not in violation of this chapter and also that the owner or custodian can adequately provide for such animal and is a fit person to own the animal, the person posting the cash bond shall be entitled to a refund of the cash bond from the treasurer. If the court finds that the animal may be released to the owner or another individual despite any violation of this chapter, the person posting the bond will be entitled to a return of the cash bond less the incurred costs of boarding, medical and impoundment. Hawaii County Ordinance Review 10-37 ATTACHMENT B Existing HCAC Code Section Review §4-1 The definitions in general are lacking as described above. Attachment A is a rough draft for some improvements. All major terms should be covered if their meaning is particularly applicable to animal control. Things such as proper food, shelter, and treatment should be explained. The code is only as strong as the definitions that each section refers to for enforcement. §4-2 Establishment of pound should reference the animal definition above. This section should not preclude the municipality from establishing a non -contract facility under direct control. Reference the section on establishing a pound. §4-3 The direction and control of "sheltering services may be under the control of the Humane Society either as the primary enforcement agency (not recommended) or as the animal holding facility only (suggested). Sections should include requirement that the shelter meet or exceed all general requirements for animal owners. §4-4 These powers should be very limited in scope. It allows too much authority for a basically untrained civilian to confiscate personal property without due process. Regardless of the training requirements, the humane officers are not sufficiently prepared to handle difficult, complex legal matters. §4-5 These should be supplemental officers. The primary authority should be changed to the police department. This section should be combined with §4-4. The humane societies should not be shut out of the enforcement completely as they can provide valuable animal experience. §4-6 - §4-8 These should be consolidated as they cover different parts of the same operation. Once again, the intent is to streamline and improve the code and its contents. Codes that repeat each other or would make more sense combined should be combined. A comprehensive annual report with a list of goals and objectives should be part of the contract. Each year's report should include an overview on the previous year's items so that bench marking can be established. §4-9 The County should not concern itself with the day to day operation of the shelter however, the County should retain the ability to review polices and procedures to confirm compliance with all appropriate laws. This provision has a great potential for "micromanagment" that could cripple the ability of a vendor to effectively operate a shelter. §4-10 This is the "give away for charitable use" section. What types of supplies are they referring to in this section? What would be resalable and would the county actually want these supplies returned? While it is a catchall practice in theory, it would not Hawaii County Ordinance Review 10-38 be practical. If the county wants to retain this section, a complete inventory of the supplies (nonperishable) should be maintained by the humane society and submitted each year along with the annual report. The shelter should also submit its consumable budget expenditures and other variable cost items so that the County can review the operational efficiency of the shelter. §4-11 If something goes wrong we aren't responsible. No matter what you do on our behalf we don't get the blame. All of the indemnification clauses should be consolidated and reviewed carefully by legal counsel as they are also seven years old. Shelters have a habit of making mistakes and, in light of the training issues, are almost prone to situations that can be a liability for the County regardless of various releases and indemnifications. A clear chain of command and accountability should be established in this section. §4-12 License fees are very low compared to other jurisdictions of comparable population and economic status. These fees should be greatly increased. While license fees will never completely cover animal control operational costs, by improving the fees and fee collection a larger portion could be recovered. Differential licensing, kennel permits, and other programs should be initiated in order to grow revenue funds. §4-13 This should be expanded but it is the minimum necessary. Extra verbiage would allow for a better identification of the animal to prevent fraud. §4-14 This allows too much time for removal of animals. The owner should correct the situation immediately. Also, the fees are too low. The section should include dogs and cats. It should be unlawful for any person to harbor a stray. §4-15 The fine is good. As with section §4-14 above, the time requirement should be changed to immediately instead of days. §4-16 This is a well-written section. It requires motorists to provide aid. §4-17 This is a useless statute that does not address the care of animals. §4-18 This is a standard ordinance that allows for all types of service dogs. §4-19 This is a standard ordinance that most jurisdictions have. §4-20 The fee is too low, more holding time is needed and the license issue should not be a factor. The code is confusing and needs clarification. §4-21 It is good to require people to notify if they are harboring strays. The penalty for harboring should be more than $10. Hawaii County Ordinance Review 10-39 §4-22 Once it is adopted it is adopted. The previous owner is out of luck. The extension of the holding period should prevent situations where an owner "returns to late". §4-23 This is good. It even punishes "accidental" breeding. §4-24 & § 4-25 These should be combined. The procedure is sound. The penalties are good. §4-26 Keeping strays is as bad as stolen dogs? The penalty should be more than $10. §4-27 $10 per poisoned dog? Lets move on. This code is so weak as to be offensive. It needs to be upgraded or included with a comprehensive animal cruelty code. See the revised code section on Animal Cruelty and Duties of Ownership. Both establish clear guidelines for owners to adhere to with requirements for the proper care of pets. §4-28 There should not be a requirement for a property owner to protect his property by using any reasonable method including lethal force. The humane society should not be "deputizing" anyone. §4-29 The leash law has been covered earlier. This is a redundant section. §4-30 Allowing a dog to stray is worse than beating a dog to death. This is a good section that has graduated penalties. §4-31.1- §4-31.3 Combine these sections but reconcile them with the proper HRS section. §4-32 - §4-32.1 Combine these sections and relegate the primary enforcement duties to the police department. These duties are best suited to law enforcement officers. §4-33 - §4-36 Combine these sections. The section does not list Chapter 4 as a section that can be addressed by issuing a summons. This needs to be changed. if §4-36 allows, certain fines or penalties should be designated for specific programs. §4-37 Reference to State codes needed. The HCAC should be closely monitored to make sure that they reference the correct section of the HRS. §4-38 If it doesn't work cut it loose. This clause should be unneeded if competent counsel reviews the code for its applicability and correctness in form. Hawaii County Ordinance Review 10-40 Eiiiiipiiiq� iiiiiii E11111illipiliq I I National Animal • control Associati®n THF PROFESSIONALS CHAPTER 11 PROPOSED IMPLEMENTATION PLAN Summary of Analysis In the judgement of the Study Team, the organization has a number of personnel who want to provide qualitative and quantitative Animal Control services. However, the analysis points to a number of needs within the agency that negatively impact the delivery of Animal Control service within Hawaii County. Implementation The Executive Director should have an opportunity to provide a written response to the County of Hawaii administration on this Study Report. If HIHS wants to implement state-of-the-art programs, a clear and consistent message from management is required. The agency should develop a long-range plan that hinges on future expansion and increased service delivery to the community. Although the agency's management enjoys respect from employees, the staff needs to build respect and understanding from the community. In order to accomplish this objective, tremendous interaction will be required. The HIHS staff should spend more time out of the office interacting with the public and government officials. With heightened support from County government, increased levels of cooperation should occur and service to the community should be enhanced. There are a variety of ways to accomplish the Animal Control mission in any community. The County of Hawaii has asked the Study Team to assess the agency's operations and administration. Based on this assessment, the Study Team has developed observations and recommendations. In any organization, it is unlikely that all personnel will be satisfied with working conditions. There will continue to be complaints of some nature. HIHS should not interpret some remarks by employees as negative. This report lays out a "blueprint" for change. It builds on the success of the organization and provides a direction for decision makers in the agency. Once a decision is made on which recommendations to implement, the County of Hawaii should require progress reports from MHS. The Executive Director might want to require monthly progress reports from his staff. The County of Hawaii should also require a follow- up review of the recommendations within six months. Proposed Implementation Plan 114 As stated earlier, the Executive Director should have the opportunity to evaluate the observations, findings and recommendations contained in this report. It is also important that the agency and all outside animal interests maintain an open channel of communication with each other. Every concern listed in this report can be resolved. However, a dedicated commitment must be made by the agency to improve and promote Animal Control and to justify the rationality of its existence: To protect people and animals. Surnrna!y of Recommendations Administration 2.01 A review of work responsibilities should be undertaken; current responsibilities should be shifted to relieve backlogs and improve agency performance. Rating: 1 2.02 Any vacant position within the agency should be filled without delay. These positions should be given ample publicity to attract qualified applicants. Rating: 1 2.03 The agency should review each position within the HIHS and distribute revised job descriptions, if necessary. Such materials should be properly signed -off (upon approval) and dated. Rating: 2 2.04 All potential employees should be tested to determine the level of skills that they may possess. Drug testing should be a prerequisite upon hiring. Rating: 1 2.05 HIHS should develop a long-range plan that hinges on future expansion and increased service delivery. Every member of the organization should be allowed to participate in the plan's development. Staff members should be provided training in plan development. Rating: 2 2.06 Once manpower levels increase, the agency should identify specific employees as "leads" to strengthen the command structure and provide supervision at all levels of the operation. bead workers should assist in new recruit instruction. Rating: 2 2.07 The agency should review and revise its policy/procedure manual as soon as possible. This book should then be distributed to all personnel, and employees should be required to "sign off' upon receiving the manual. Policies and procedures should be offered in individual sections to facilitate quick reference and for easy updating. Sample copies of forms, along with an explanation in their use, should also be included. Implementation and revision dates should be predominately displayed. Employees safety issues should be addressed within each procedure. Rating: 1 2.08 Additional office space should be located for line personnel. Rating. 3 Proposed Implementation Plan 11-2 2.09 Audits should be performed on a regular basis to insure the integrity of data entry. Rating: 3 2.10 The Animal Shelter should generate monthly reports that provide a more detailed breakdown of Animal Control -related activities (such as types of calls for services, by district and by shift). Rating: 3 2.11 The agency needs to increase its role in the budget process and research the possibility of obtaining grant monies to fund special projects, such as facility upgrades. Rating: 2 2.12 It is recommended that the HIHS improve the budget process by actually describing contract versus non -contractual services within the budget itself. Such an improvement would possibly eliminate much of the confusion regarding the public's service expectations. In previous NACA evaluations, budgeted amounts are actually identified with a specific service (i.e.: field, shelter and administration). In addition, the Study Team would recommend that the budget separately reflect the cost of operating each of the 3 shelters. Such information would provide citizens a more accurate assessment regarding the distribution of their tax dollars. Rating: 3 2.13 The County of Hawaii should continue to clarify and enhance the Agreement, to include those suggestions which appear on pages 2-16 and 2-17 of Chapter 2, "Administration. " Rating: 3 2.14 All employees should have access to e-mail and the Internet (whether supervisory or not). Rating: 3 2.15 Any promotional candidate should be tested to determine the level of skills they may possess. Rating. 2 2.16 The agency should conduct a department -wide assessment to determine training needs. All current and future training needs, which would encompass all employees, should be included in the budget process. Rating: 3 2.17 HIHS should offer special training (such as "Train the Trainer") to those who educate new employees and provide extra compensation for this added responsibility. Rating: 3 2.18 The agency should identify someone within the organization as a Training Officer. This position would be responsible for tracking all training records and the development of a structured training program for all areas of the agency. Training deficiencies should be instantly identified and dealt with. Rating: 2 2.19 The agency should automate all their training records. Rating: 3 Proposed Implementation Plan 11-3 2.20 In regards to "Rule 19" and the Badging Process, the County of Hawaii should: 1) Identify an individual (and department) which would be responsible for scheduling the badging classes and to coordinate such arrangements with the other departments; 2) Offer such classes at least twice annually during predetermined months of each year; 3) Develop a training outline defining course goals, accompanied with training materials that the recruit may retain for future reference. In addition, a list of instructors should be developed to enable the County to draw upon a larger pool of trainers in an effort to alleviate concerns regarding staff shortages and scheduling conflicts. Rating: 2 2.21 The agency should introduce a career development program for all employees. Rating: 3 2.22 The agency's name should be changed to reflect modern times and boost public confidence in the organization. Rating: 3 Communications 3.01 The agency should hire a professional communications consultant to evaluate its current communications center (including phone service). Such an assessment should be performed on all areas of operations (field and shelter) to provide improved customer service, insure officer safety and to lessen the stress load of the staff. Rating: 3 3.02 HIHS should consider offering a central, island -wide communications center. Such a center would handle (and route) incoming citizen inquiries among the three facilities, dispatch complaints to officers in the field, and monitor all field activity. Rating: 3 3.03 The agency should purchase a software program in an effort to capture vital data regarding response times and workload. This software should also provide knowledge of prior animal -related complaints/offenses and perform address and name queries. All service calls should be assigned a case number. In addition, dispatch, arrival and clearance times should be logged for each individual service call. Rating: 3 3.04 All current dispatch centers should be moved into a restricted area of each building, away from the main office (also see 3.02). Rating: 1 3.05 Portable radios should be purchase and issued to all field personnel and their use made mandatory. Rating: 1 3.06 Field personnel should communicate their location with dispatch (at all times) on any call or follow-up, regardless of the nature. Rating: 1 3.07 The agency should evaluate all communication equipment for functionality and provide upgrades, if necessary. Rating: 1 Proposed Implementation Plan 11-4 3.08 Communication personnel should be offered formal training in the use of communication software and equipment, telephone etiquette and public relations. Officers should also receive training in proper radio protocols. Rating: 3 3.09 To support future staffing needs, the agency should continually track the number of shelter visitors and phone calls received. Rating: 2 Shelter Operations 4.01 The County of Hawaii should explore the possibility of expanding and renovating its current animal sheltering facility in Kailua-Kona within the very near future. Rating: 1 4.02 HIHS should proceed with plans to expand and improve the Waimea animal sheltering facility as soon as possible. Rating: 1 4.03 Eliminate any clutter inside or outside the facility. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.04 HIHS should evaluate outside lighting (at all 3 facilities) in the public and employee parking lots and offer improvements, if necessary for safety purposes. Rating: 3 4.05 Increase the number of parking spaces offered to the public. (Kailua-Kona and Keaau) Rating: 3 4.06 All areas of the facility should be upgraded to provide increased access to disabled persons. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.07 Repaint areas within the shelter as required. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.08 Repair and reseal all animal holding enclosures where needed. Any deteriorated fencing, gates and framework should be fixed or replaced. Tops should be provided for all kennels. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.09 Repair or replace perimeter fencing as required. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.10 A television with a VCR should be provided in the customer service area to play educational tapes for customers waiting for service. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.11 The customer service area should be expanded and/or redesigned; workstations should also be installed to increase the comfort of those visitors completing paperwork. (Kailua-Kona, Keaau and Waimea) Rating: 3 Proposed Implementation Plan 11-5 4.12 Identify and remove all hazards to visitors, employees and animals. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.13 All equipment/supplies need to be stored properly, out of the reach and view of visitors. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.14 Existing equipment should be inventoried and a determination made on its usefulness. Unneeded items should be disposed of properly. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.15 Adult cats and kittens should be housed in a separate area away from dogs. (Kailua- Kona) Rating: 1 4.16 HIHS should ensure that all kennels are separated by a solid partition of either steel or concrete, both inside and out. Such partitions must be a minimum of 4 feet in height, with an additional 2 feet of fencing on top of the wall. (Kailua-Kona, Keaau and Waimea) Rating: 9 4.17 The agency should consider expanding its current isolation areas in an attempt to segregate sick, quarantined and injured animals from the general shelter population. Whenever possible, puppies should be kept isolated from the adult dog population. Isolated cats should also be housed in areas away from dogs. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.18 Plastic or fiberglass resting benches should be provided for all kennels in an effort to make dogs more comfortable. (Kailua-Kona, Keaau and Waimea) Rating: 2 4.19 All kennels and cages should be secured with padlocks to prohibit public access. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.20 It is not desirable for multiple animals to be housed together in the same kennel/cage, however the Study Team recognizes the fact that the current facilities are not adequate to handle the number of animals that the agency impounds. Any expansion may be cost prohibitive for the agency (actual costs should be explored and considered for capital outlay or grant funding). (Kailua-Kona, Keaau and Waimea) Rating: 1 4.21 Dogs and cats should not be euthanised in plain sight or sound of other live animals. (Waimea) Rating:3 4.22 Improved lighting should be offered throughout all animal holding areas (Kailua- Kona and Waimea). Rating: 3 4.23 Increased supervision should be required within the animal holding areas in an attempt to increase (and guarantee) the level of care afforded to all animals. A certified Proposed Implementation Plan 11-6 veterinary technician should be hired to improve oversight in these areas. (Waimea) Rating: 1 4.24 A vermin -proof area should be identified for food storage. (Waimea) Rating: 1 4.25 All dogs should be removed from their kennel prior to cleaning. This prevents animals from being exposed to excessive amounts of chemicals and water. These animals may be placed in a temporary kennel or cage during the cleaning process. it should be recognized that the physical removal or transferring of animals from one cage to another will increase staff cleaning time. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.26 All kennels should be free of standing water and as dry as possible before animals are returned to them. Kennel floors should be squeegeed dry. Floor fans may also be used to expedite the drying process. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.27 All food and water containers should be disinfected daily. Rating: 1 4.28 Based on the Humane Society of the United States' kennel staffing formula, the agency should offer no less than 9 kennel workers (distributed among the 3 facilities based on that shelter's impounding data) for the purpose of cleaning and feeding. Other work responsibilities (such as assisting the public, evaluating and vaccinating animals and recording impounded animals) will increase the agency's need for more kennel employees. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.29 The agency should purchase an animal tracking software program which would capture vital data regarding impounded and reclaimed/adopted animals. This software should also provide knowledge of prior offenses and name queries. Computer and printer upgrades should be offered in all work areas. Additional computer training should be offered to those employees who require it. Workers should be trained in computer usage and software. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.30 HIHS should develop uniform animal tracking procedures for all 3 shelters. The Study Team observed varying tracking methods among the facilities (ie: the Keaau facility placed numbered metal identification tags on incoming dogs, while the Kailua-Kona and Waimea shelters did not). Tracking methods should always be consistent and reliable to minimize errors and prevent the agency from being placed in an uncomfortable (liability) situation. In addition, the agency should perform a morning and evening "headcount" of impounded animals to reinforce inventory procedures. Rating: 1 4.31 The County of Hawaii should reevaluate its animal ordinances. The Study Team felt that the minimum animal holding times for stray dogs and cats were unusually short and not consistent with other Animal Control agencies. Rating: 2 Proposed Implementation Plan 11-7 4.32 Although not legally required, HIHS should reevaluate its animal holding period for cats. The Study Team felt that the minimum holding time for cats was unusually short, and is not consistent with other Animal Control/Care agencies. In addition, the Study Team would recommend the same holding period for both dogs and cats. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.33 Proper identification should be obtained from all citizens/owners during the surrender, reclaim and adoption process. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.34 The agency should introduce an impoundment fee schedule, charging escalating fees for repeat offenders. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.35 Potential adopters should undergo a criminal background check (if not allowed by law, they then should be screened for any previous animal/abuse neglect conviction). (Kailua-Kona, Keaau and Waimea) Rating: 1 4.36 HIHS should utilize volunteers or hire additional personnel to council prospective animal adopters. (Kailua-Kona, Keaau and Waimea) Rating: 2 4.37 If not already provided, all drug supply safes should be bolted to the floor to prevent theft. (Kailua-Kona, Keaau and Waimea) Rating: 1 4.38 A euthanasia table, scales (to help determine the animal's weight for proper injection dosages), muzzles, grooming clippers and a stethoscope should be purchased for each sheltering facility. (Kailua-Kona, Keaau and Waimea) Rating: 3 4.39 The Waimea euthanasia room should be expanded to better accommodate staff members and animals. Rating:3 Field Operations 5.01 With an increase in kennel staffing levels, HIHS should discontinue the use of field personnel in the kennel and customer service areas. Rating: 1 5.02 The agency should review and enhance its current policies defining specific service delivery tactics. Rating: 1 5.03 HIHS should annually review its call prioritization program to assure timely response to important calls and a reasonable response to non-priority calls. Citizens should be informed of the approximate time for calls that are not critical. Rating: 1 5.04 The agency should allocate enough field positions as to ensure the needs of citizens are met without undue delays. All calls should be answered before the end of each day. Based on the "calls for service" model, the agency should have a minimum of 14.4 officers Proposed Implementation Plan 11-8 on duty, for day -shift. Rating: 1 5.05 With an increase in staffing levels, HIHS should introduce full weekend and limited evening service, and a later end time to daytime shifts. Rating: 1 5.06 Any shift involving field personnel (except those that are on emergency stand-by) should be properly supervised. Any designated "lead" employees should be properly compensated for this added responsibility. Rating: 2 5.07 The agency should abolish its procedure of ignoring or pushing back any call for service until the next day (or later). If manpower levels cannot be increased, the elimination of some types of calls may improve service delivery. Rating: 1 5.08 Field personnel should be rotated into different zones every 90 days. The agency should also gather and review workload statistics to ensure the equality of district boundaries. Rating: 3 5.09 HIHS should maintain data calls for service per shift, per beat area and per officer. Rating: 3 5.10 The agency should develop a policy which would direct Humane Officers into the field within a specific time upon the commencement of work. Rating: 2 5.11 HIHS should phase-out all their animal containment units and replace them with a commercial model typically used in the Animal Control profession. All containment units should be fitted with temperature gauges, which may be monitored by officers within the cab of each truck. If needed, air conditioners should be installed. A strict policy or mandate should be introduced regarding animal transport in HIHS vehicles. Rating: 1 5.12 Older Field Service Delivery Vehicles should be replaced immediately. Rating: 1 5.13 The agency should identify someone within the organization to develop a fleet management schedule to replace vehicles once a maximum range and age is achieved. Rating: 3 5.14 The current fleet color scheme (vehicles of varying colors) is unusual and not consistentwith otherAnimal Control/Care agencies. All HIHS vehicles should be repainted to offer a uniform appearance among the entire fleet. Rating: 3 5.15 Animal compartments should be cleaned and disinfected after every "unloading" to prevent the spread of disease. Rating: 1 5.16 A secured area should be identified for the unloading of animals. Rating: 2 Proposed Implementation Plan 11-9 5.17 Public service announcements should be predominately displayed on the outside of all vehicles. Rating: 3 5.18 The agency should explore the legalities of using red or blue warning lights on Field Service Delivery Vehicles (officers should not use these lights to run "hot" or abuse traffic laws - they are intended to be used in a non -emergency state as added protection and safety when working in high traffic areas). Rating: 3 5.19 The agency should solicit input from field personnel (not just supervisors) on what types of equipment upgrades they require. All equipment should be inspected regularly for damage/deterioration. Equipment should be issued to each individual officer. Stretchers or other similar devices should be purchased to minimize damage in transporting an injured animal. The agency should ensure that each individual officer is issued the same types of equipment. Rating: 2 5.20 Field personnel should be polled as to their acceptance of bullet-proof vests. This equipment should be purchase if endorsed by officers. Rating: 2 5.21 A structured Field Training Program should be introduced. Field personnel should be properly trained in report writing, officer safety procedures, court testimony and investigative techniques. All training should be documented. Certified training should also be obtained from an accredited Animal Control Academy. Rating: 2 5.22 Uniform apparel should be upgraded to provide an "enforcement look." Rating: 3 5.23 HIHS should offer specialized (promotional) positions to include a cruelty investigator. Such a position is common in larger Animal Control agencies and ensures the prompt handling and disposition of these types of service calls. Rating: 2 5.24 Those employees that require "badging" or recertification should be offered this training as soon as possible. Rating: 1 5.25 The agency should consider implementing a military -style ranking system for field personnel. Rating: 3 5.26 HIHS should implement an "on-call" risk policy for those employees that respond to emergency calls. Rating: 1 5.27 The agency should purchase a tranquilizer system for the remote chemical capture of animals. Anyone involved in the use of this equipment should be annually certified. Such certification should be well documented. Policies should also be introduced describing the situations which would require immobilization. Rating: 3 Proposed Implementation Plan 11-10 Occupational Safety Procedures 6.01 The use of protective equipment/clothing (to include safety footwear) by the agency should be mandated to guarantee employee safety and protect the HIHS from liability. Rating: 1 6.02 Eye wash stations should be installed in euthanasia, vaccination and chemical dispensing areas should accidental exposure to chemicals or drugs occur. Rating: 1 6.03 First aid kits should be installed in animal holding areas. Medical supplies should be inventoried on a regular basis. Rating: 1 6.04 All employees should be issued occupational exposure advisory cards. Rating: 3 6.05 All employees should be trained in CPR and first aid. This training should be mandatory. Rating: 2 6.06 Although rabies is not present in Hawaii County, it is NACA's standard recommendation that gny employee that has contact with animals should be offered the rabies prophylaxis (this preventative treatment should be made mandatory). Rating: 2 6.07 A continuing safety program should be developed for all employees. Areas that should be included are animal behavior and handling, officer safety, lifting techniques, self defense, conflict resolution, and zoonotic diseases. Rating: 1 6.08 Field personnel that are susceptible to risky situations or possible physical confrontations with the public should be vaccinated for hepatitis. Rating: 3 6.09 Any field employee should be issued bite sticks and pepper spray to enhance officer safety. All personnel should be certified in the use of such equipment. Rating: 1 6.10 Any employee that operates an agency vehicle should be certified in defensive driving techniques. Rating: 2 6.11 The customer service areas within each shelter should be redesigned to isolate employees from possible assault situations. Panic buttons should also be located in an area easily accessible by employees in the event of an emergency. Rating: 1 6.12 Decibel levels should be tested within the kennel areas to determine if unsafe conditions exist for workers. Ear plugs should be mandatory for employees. Rating: 1 6.13 The agency should evaluate outside lighting in the public and employee parking lots and offer improvements, if necessary, for safety purposes. Rating: 3 Proposed Implementation Plan 11-11 Licensing 7.01 Based on NACA's policy statement, the County of Hawaii should require that all dogs and cats to be annually licensed and to require those licenses to be worn at all times. License fees should be established (at a rate consistent with the national average) in addition to offering differential fees (sexually altered versus unaltered) to encourage pet sterilization. Information regarding the actual number of licenses sold should be tracked annually by the County of Hawaii and offered in a summarized format. Rating: 3 7.02 In addition to licensing, the Study Team would also recommend that the County of Hawaii and HIHS explore the possibility of requiring the control of cats. This practice is fairly common throughout the United States and would enhance current nuisance ordinance compliance. Rating: 3 7.03 Audits should be performed to insure the integrity of licensing data entry. Rating: 3 7.04 License tags should be audited at the beginning and end of every fiscal year. Rating: 3 7.05 The County of Hawaii should explore the possibility of allowing local veterinarians to sell license tags. This procedure is fairly common throughout the United States and would enhance the current licensing program. Rating: 3 Employee Attitude Survey 8.01 HIHS should develop a system for routinely collecting relevant information on employee grievances and disciplinary actions. Rating: 3 8.02 The agency should institute (within its own organization) an annual awards program to recognize outstanding performance and contributions. Rating: 3 8.03 HIHS should introduce an employee idea program (with possible financial incentives) to encourage new and innovative concepts in improving service delivery. Rating: 3 Community/Interagency Relations 9.01 HIHS needs to increase its role and visibility within the community. The agency must cultivate and improve media relations by providing information relating to the positive aspects of the organization. The agency should take a more aggressive approach to public relations and "sell" the organization to the community on a continuing basis to increase support among taxpayers and improve its level of funding. Rating: 3 Proposed Implementation Plan 11-12 9.02 The agency should identify someone within the organization to coordinate educational services and speaking engagements (at the time of this study, both Community Program Coordinator positions were vacant). Such services should be promoted heavily within the community and initiated by HIHS. Rating: 3 9.03 HIHS employees (regardless of position or level) should be encouraged to participate in outreach programs. Rating: 3 9.04 The agency should develop and distribute information to the public relating to field and shelter services and ordinances. Rating: 3 9.05 An Animal Control Advisory Board should be established. The new Board should develop and implement its own goals and objectives. The Board should write its own by- laws, defining its purpose and specific goals. A "conflict of interest" statement should also be added to the Board's by-laws. New Animal Control Advisory Board members should be provided training or instruction regarding their Board responsibilities. All roles and functions should be clearly defined. Rating: 3 9.06 HIHS and the new Advisory Board should develop a procedure in which to investigate citizen complaints/concerns regarding the HIHS staff or services. The purpose of this procedure is to build trust among the government and the community and to provide an impartial review of HIHS activities. Rating: 3 9.07 The County should consider reassigning the administration of the Animal Control contract to an agency that may be a more "natural fit" and possesses some knowledge of public safety and health issues, such as the Health Department or Police Department. Of course, the transfer of such responsibilities should include additional financial and administrative support, and training for those involved in this process. Rating: 3 9.08 The Study Team suggests that the feral cat trap/neuter/release issue should be researched and reviewed bythe new Advisory Board for further action. No Rating Assigned 9.09 Once manpower levels increase, it is suggested that cleaning personnel begin work at an earlier time (such as 7:00 a.m.), and that animal holding areas open at 10:00 a.m. and close at 6:00 p.m. On Saturday, all shelters could open at 10:00 a.m. and close at 4:00 p.m. The shelters could remain closed on Sunday. Rating: 3 9.10 The Study Team would recommend that the County, the new Animal Control Advisory Board and the contractor develop a long-term strategy that includes a new animal sheltering facility for the Kailua-Kana service area. In addition, consideration should also be given to adding an additional facility for southern County residents and an upgrade or new facility in the Waimea area. Rating: 1 Proposed Implementation Plan 11-13 9.11 While the Study Team sympathizes with HIHS regarding the moral dilemma of adopting out animals which may be exposed to possible injury, the Study Team believes that responsible pet owners, to include pig hunters, should not be excluded from the adoption process. Rating: 1 9.12 In the Study Team's opinion, the County of Hawaii maybe better served by pursuing other means of field service delivery, including abandoning the current operation and building a new field program from the ground up. It is the recommendation of the Study Team that the County of Hawaii should consider the establishment of an Animal Control enforcement division within the Hawaii County Police Department or the Health Department. Shelter services could continue to be outsourced to a local humane organization. Information regarding the proposed "takeover" of field operations may be within Chapter 9, "Community/lnteragency Relations." Rating: 2 9.13 The Study Team would not recommend a division of current animal sheltering contract responsibilities until such time as the newfield program has been established. The issue of splitting shelter services may then be researched and reviewed by the new Advisory Board for any further action. No Rating Assigned Hawaii Counfy Ordinance Review 10.01 A review of current County of Hawaii ordinances indicates a need for improvement. The new Animal Control Advisory Board, the County of Hawaii, HIHS and the community should work together to update its ordinances. Rating: 3 Proposed Implementation Plan 19-14 Priority Recommendations Rating #1 - Immediate; Rating #2 - 3-6 months; Rating #3 - 6-12 months Suggested Priority Recommendation Number Rating # 1 2.01 Rating # 1 2.02 Rating # 1 2.04 Rating # 1 2.07 Rating # 1 3.04 Rating # 1 3.05 Rating # 1 3.06 Rating # 1 3.07 Rating # 1 4.01 Rating # 1 4.02 Rating # 1 4.12 Rating # 1 4.15 Rating # 1 4.16 Rating #1 4.17 Rating #1 4.19 Rating #1 4.20 Rating #1 4.23 Rating #1 4.24 Rating #1 4.25 Rating #1 4.26 Rating #1 4.27 Rating #1 4.28 Rating #1 4.30 Rating #1 4.32 Proposed Implementation Plan 11-15 Suggested Priority Recommendation Number Rating #1 Rating #1 4.33 4.34 Rating #1 Rating #1 Rating #1 4.35 4.37 5.01 Rating #1 5.02 Rating #1 5.03 Rating #1 5.04 Rating #1 5.05 Rating #1 5.07 Rating #1 5.11 Rating #1 Rating #1 5.12 5.15 Rating #1 5.24 Rating #1 5.26 Rating #1 6.01 Rating #1 Rating #1 Rating #1 6.02 6.03 6.07 Rating #1 6.09 Rating #1 Rating #1 6.11 6.12 Rating #1 Rating #1 Rating #2 Rating #2 9.10 9.11 2.03 2.05 Proposed Implementation Plan 11-16 Suggested Priority Recommendation Number Rating #2 2.06 Rating #2 2.11 Rating #2 2.15 Rating #2 2.18 Rating #2 2.20 Rating #2 3.09 Rating #2 4.18 Rating #2 4.31 Rating #2 4.36 Rating #2 5.06 Rating #2 5.10 Rating #2 5.16 Rating #2 5.19 Rating #2 5.20 Rating #2 5.21 Rating #2 5.23 Rating #2 6.05 Rating #2 6.06 Rating #2 6.10 Rating #2 9.12 Rating #3 2.08 Rating #3 2.09 Rating #3 2.10 Rating #3 2.12 Rating #3 2.13 Rating #3 2.14 Proposed Implementation Plan 11-17 Suggested Priority Recommendation Number Rating #3 2.16 Rating #3 2.17 Rating #3 2.19 Rating #3 2.21 Rating #3 2.22 Rating #3 3.01 Rating #3 3.02 Rating #3 3.03 Rating #3 3.08 Rating #3 4.03 Rating #3 4.04 Rating #3 4.05 Rating #3 4.06 Rating #3 4.07 Rating #3 4.08 Rating #3 4.09 Rating #3 4.10 Rating #3 4.11 Rating #3 4.13 Rating #3 4.14 Rating #3 4.21 Rating #3 4.22 Rating #3 4.29 Rating #3 4.38 Rating #3 4.39 Rating #3 5.08 Proposed Implementation Plan 11-18 Suggested Priority Recommendation Number Rating #3 5.09 Rating #3 5.13 Rating #3 5.14 Rating #3 5.17 Rating #3 5.18 Rating #3 5.22 Rating #3 5.25 Rating #3 5.27 Rating #3 6.04 Rating #3 6.08 Rating #3 6.13 Rating #3 7.01 Rating #3 7.02 Rating #3 7.03 Rating #3 7.04 Rating #3 7.05 Rating #3 8.01 Rating #3 8.02 Rating #3 8.03 Rating #3 9.01 Rating #3 9.02 Rating #3 9.03 Rating #3 9.04 Rating #3 9.05 Rating #3 9.06 Rating #3 9.07 Proposed Implementation Plan 11-19 Suggested Priority Recommendation Number Rating #3 9.09 Rating ##3 10.01 No Rating Assigned 9.08 No Rating Assigned 9.13 Proposed Implementation Plan 11-20 County Department Responses to the National Animal Control Association's Independent Evaluation of the Animal Control Program of the County of Ilawai `i 1. Corporation Counsel (Lester Ishado), October 3, 2001 2. Finance Department (William Takaba), October 8, 2001 3. Prosecuting Attorney (Jay T. Kimura), October 9, 2001 4. Police Department (Lawrence K. Mahuna), October 9, 2001 Harry Kim 0FK"T `:' Mayor 01 OCT m0 PM 3: 40 C�VUT1fVr of nfunit OFFICE OF THE CORPORATION COUNSEL 101 Aupuni Street, Suite 325 • Hilo, Hawaii 96720-4262 • (808) 961-8251 • FAX (808) 961-8622 October 3, 2001 Constance R. Kiriu Legislative Auditor County of Hawaii 25 Aupuni Street Hilo, HI 96720 Re: National Animal Control Association Program Evaluation Report Dear Ms. Kiriu: Lincoln S.T. Ashida Corporation Counsel Gerald Takase Assi aunt Corporation Counsel This letter is written in response to your request for our response to the National Animal Control Association (NACA) Program Evaluation Report dated June, 2001. In general, the report calls for more involvement by the County of Hawaii, and this letter will address the major recommendations of the report. The report recommends that: The County Council appoint an Advisory Board (page 9-3). The Board will make recommendations on rules, review budgets and contracts, conduct public hearings to determine whether any person is in violation of the animal control law, hear appeals of persons losing their permits or licenses, hear complaints regarding conduct of humane officers, mediate conflicts between the County and HIHS, and investigate citizen complaints regarding the Hawaii Island Humane Society (HIHS) (page 9-4). Comments The role of the Board as described above is more than advisory. The Board will become involved in administrative matters of HIHS, and the County's involvement in the creation and/or appointment of an Advisory Board may subject the County to claims of negligent supervision of HIHS. The role of HIHS as an independent contractor will be diminished. Also, the proposal will provide Constance R. Kiriu Legislative Auditor October 3, 2001 Page Two for administrative hearings on alleged violations of the animal control laws. Assuming that such a role could be made consistent with state and county laws, the proposal will require additional funding for the Board and hearings. 2. The County re -assign administration of the Agreement from the Department of Finance to the Police Department or Health Department (pages 9-7 and 9-18) and create an animal control division within the Police Department (page 9-18). Comments The Police Department is better equipped to respond to this proposal. It should be noted that this proposal may require additional funding for police officers. 3. The County continue to clarify and enhance the Agreement between the County and HIHS (page 2-28). There is a First Amendment to Agreement dated July 5, 2001. The report (page 2-16) notes that: A. The response time for responding to certain calls is unacceptable. Response should be immediate. B. Police Department obligations should be spelled out. The police should be the first responder after HIHS hours. C. There should be a clearer distinction between Animal Control and Humane Society duties, e.g. the minimum number of hours to be spent on field duties should be stated. D. There is no criteria for determination of funding requirements. B. There should be a minimum wage required for humane officers. Comments The proposals should be addressed when the Agreement is subject to renewal. It should be noted that certain requirements, e.g. that humane officers be paid a minimum wage, are administrative matters for HIHS to decide. HIHS is also Constance R. Kiriu Legislative Auditor October 3, 2001 Page Three better equipped to comment on whether the changes in performance, e.g. response time, are feasible given their level of staffing. 4. The County change the badging process under Rule 19 by identifying an individual or department responsible for scheduling badging classes, holding classes at least twice a year, and developing a training outline and materials (page 2-23). This is apparently required under the First Amendment to Agreement. Under Rule 19, the Director of Finance shall require an applicant for humane officer to complete training by the Police Department, Office of the Prosecuting Attorney, and Office of the Corporation Counsel (page 2-23). Comments Recognizing that the Department of Finance does not have any particular expertise in this area, and subject to their comments and concerns, as the administering department for the Agreement, the Department of Finance could schedule and conduct the classes. 5. The County review the County Code relating to animal control, e.g. changing the penalties (page 10-5), and requiring all dogs and cats to be licensed, requiring licenses to be worn, exploring the possibility of requiring control of cats, and exploring the possibility of allowing veterinarians to sell licenses (page 7-4). Comments With the understanding that the proposed changes involve policy decisions which are within the purview of the Mayor and the Council, once these decisions are made, the Office of the Corporation Counsel and/or the Legislative Auditor could assist in making these changes. Please call me if you have any questions. Thank you. Sincerely, *'Lester Ishado Deputy Corporation Counsel Harry Kim Mayor October 8, 2001 OF_IG'Cv THE William Takaba "�� F ` - '1 !�IT�;� Director LEG!s! ",: � i Nancy E. Crawford 01 OCT —9 ai 1 9: 07 Deputy Director County Of Hawaii Finance Department 25 Aupuni Street, Room 118 • Hilo, Hawaii 96720 (808) 961-8234 • Fax (808) 961-8248 Constance R. Kiriu, Legislative Auditor County of Hawaii 25 Aupuni Street Hilo, HI 96720 Reference: National Animal Control Association Program Evaluation Report June 2001 Thank you for the opportunity to review the Program Evaluation Report of Hawaii County's animal control program, prepared by the National Animal Control Association (NACA). Our responses to the findings and recommendations are hereby submitted. Report Overview In general, the Study Team did a thorough job in its evaluation of the county's animal control program. The resulting report is very informative, and reflects the contractor's commitment to carry out its work in a responsible and professional manner. Goals, objectives, and standards for an effective animal control program are clearly presented and recommendations for changes are rated according to need and practicality. Because of this, the report lays a nice foundation for the development of a long-range animal control plan for Hawaii County. If the County is serious about addressing its responsibilities in this area, as we believe it should be, the development of this plan is an important next step. Comments on Specific findings and Recommendations We have prepared comments on issues that relate specifically to the Finance Department. Responsibility. The report begins by pointing out that a good animal control program is a community responsibility that "needs to go beyond the old-fashioned approach to animal control services." If not, "it will create constant headaches for local government officials and can become a local government liability if citizens seek redress for injury Constance R. Kiriu Page 2 October 8, 2001 and damage caused by free -roaming animals." (Management Information Report, 9993) We certainly agree with this notion and because of this, support recommendations that relate specifically to the improvement of administrative oversight, program quality and structure, training, and safety. Contract Administration. According to the report, "For the first time in any NACA evaluation, the administration of a field and/or shelter contract was found to be entrusted to the Department of Finance. In NACA's previous experiences, contract administration has been delegated to a Police or Sheriffs Department, Health Department or City or County Administrator." "While the Study Team does not dispute the commitment or efforts of the Director of Finance or his staff regarding the contract's administration, it is apparent that the Finance Department personnel do not possess the level of Animal Control knowledge or expertise necessary to effectively oversee HIHS operational issues and address citizen complaints. It appears that the administration of the contracts (which was previously overseen by the Police Department) was awarded to the Finance Department by default, as no other County department expressed any desire to accept that responsibility." (Sec. 9-5) We agree with the report's recommendations that the County consider reassigning the administration of the animal control contract to an agency that may be a more "natural fit" and possesses some knowledge of public safety and health issues, such as the Health Department or Police Department. (9.07) In this case, it would be the Police Department. Under the current structure, although the Finance Department is responsible for preparing and monitoring the animal control contract, it is not staffed to perform adequate onsite assessments, program evaluations, and follow-up on complaints. Budget. The report recommends that the contractor improve the budget process by defining contract versus non -contractual services within the budget itself. In addition, it recommends that the budget separately reflect the cost of operating each of the 3 shelters. (2.12) To take this a step further, we believe that the contract should include a pen`ormance- based or purchase of service budget, where the contractor gets paid according to the units of animal control services provided (i.e., shelter days, number citations issued, etc.). This would help clarify what the County is asking the contractor to provide and would establish more accountability. Constance R. Kiriu Page 3 October 8, 2001 As to overall program cost, the report points out that many cities use a formula when developing a budget for the first time. The formula used for a low-end budget would be population of service area x $3; and a high-end budget would be population of service area x $5. If the high-end formula were applied to Hawaii County, it would be: 148,677 people x $5, or $743,385. Our budget for FY 2001-02 is $788,605, or $45,220 more than the "high-end" budget. The report recommends additional spending for field staff, equipment, supplies, and training. With this in mind, it is very important that contracted services be better defined so that budget decisions (including reductions) can be made more objectively. ( Sec. 9- 20) Operating Standards. The report recommends that the contractor review and revise its policy/procedure manual as soon as possible. (2.07) We agree with this recommendation and believe that nationally recognized standards for shelter and field operations should be incorporated into the manual and followed. Many of the public complaints now received occur because it is believed that certain practices do not conform to these standards, and we have no basis on which to confirm or dispute this. First Amendment to the Agreement. The First Amendment was developed mostly with information provided by the contractor. The contract itself will be improved with better operating standards and the execution of recommendations made in the report, if any are done. We hereby request sample copies of animal control service contract from the Study Team. (Sec. 2-16) Animal Control Advisory Board. The report recommends the establishment of an Animal Control Advisory Board to develop its own goals and objectives. It will also develop a procedure in which to investigate citizen complaints. We agree with these recommendations. (9.05 — 9.06) Hawaii County Ordinance Review. The report found current County ordinances need improvement. It recommended that the new Animal Control Advisory board, the County of Hawaii, the contractor and the community should work together to update its ordinances. We agree with this recommendation. (10.01) Conclusion The Department of Finance appreciates the opportunity to present comments on the findings and recommendations of the program evaluation report for animal control in Hawaii County. We believe that many of the recommendations are worthy of serious consideration and hope that an effort will be made to carry them out over time. Should Constance R. Kiriu Page 4 October 8, 2001 you have any questions on any of my comments, please do not hesitate to call me. Thank you. Sincerely yours, W. cc: Marry Kim, Mayor 10/09/01 14:36 FAX 8089618908 PROS ATTY ADMIN JAY T. KIMURA PROSECUTING ATTORNEY J,• -'moi.' . .,. CHARLENE Y. IBOSHI FIRST OEPUTY .: PROSECUTING ATTORNEY OFFICE OF THE PROSECUTING ATTORNEY October 9. 2001 1� 001 H1L0 HAWAl186TZE0 FNC 99661-8 e 3403 9334-= %CST HAWAII LN4rr P.Q. ®OX 749 KEALAKEKVA. HAWAII 96750 PH. 322-2552 rAX 322-a584 �- rTti �1® Cn -111 TO: Constance R Kiriu Legislative Auditor I FROM: Jay T. Kim ria Prosecuting rney RE: National Animal Control Association (NACA) Program Evaluation Report 1 have reviewed the report dated June 2001, concur with the results, and aryl willing to support efforts to carry out the recommendations made on the Program Evaluation Report Thank you for the opportunity to conunent. JTK: ph Harry Kim Mayor October 9, 2001 (nountij of 'latah POLICE DEPARTMENT 349 Kapiolani Street • Hilo, Hawaii 96720-3998 (808)935-3311 • Fax(808)961-8869 James S. Correa Police Chief n M TO (�NS R. KIRIU, LEGISLATIVE AUDITOR FROM L NCE K. MAHUNA, ASSISTANT POLICE CHIEF, ACTING POLICE CHIEF SUBJECT: RESPONSE TO NACA PROGRAM EVALUATION REPORT This responds to your letter of September 19, 2001, requesting comments on the above -referenced subject. In reviewing the evaluation report, the following areas were identified by staff as having an affect on police operations if implemented: Administration: In regards to "Rule 19" and the Badging Process, presently we along with the Prosecutor's Office and the Office of Corporation Counsel share in the responsibility of offering training to Hawaii Island Humane Society (HIHS) Officer(s) upon request. Our Recruit Class schedule is routinely sent to HIHS for informational purposes. u From the review, it is obvious that HIHS has failed to comply with their contractual obligation by not having their humane officers re -appointed as mandated. The study indicates that there should be an "individual" or "department" to oversee scheduling, coordinating, and developing training outline for badging classes. It is our opinion that this responsibility should rest with HIHS, as we nor any other government agency have the expertise in the area of animal control. Comm nicatign: There is reference within the study to place communications with the Police Department. o The Police Department already field "emergency" animal complaint calls, especially in instances where the safety and welfare of the public is threatened. The department also field animal complaint calls which we are mandated to enforce, i.e. noisy dog complaints and after hour calls. SUBJECT: RESPONSE TO NACA PROGRAM EVALUATION REPORT Page 2 o The Police Department is against linking HIHS communication with our central dispatch for obvious reasons, i.e. costs for additional manpower, increase and interference in radio traffic that may hinder primary police operations. u Such private vendors as HIHS should solicit and be able to provide their own communication system along with a dedicated phone line. Field Operations: The Police Department continues to respond to priority calls, as reflected by statistics gathered from HIHS and the police. We will continue this practice in incidents where the public safety and welfare is threatened. o Having the Police Department responsible for animal control issues would strain current resources and take away from the primary mission of the department. ® We agree with the study that use of Humane Officers for kennel duties should be curtailed freeing them to respond to complaints. HIHS should prioritize calls for service for more timely response and allocate sufficient field officers to ensure needs are met. u The study team indicates observing "a significant level of frustration among citizens during the on-site visit, which can be attributed to a lack of understanding, communication and cooperation between HIHS and government itself." We feel that animal -related issues are best addressed by HIHS who should have the expertise. Community/Interagency Relations: Reference that animal control operations be managed by the Police Department or Health Department. Li The failure of HIHS to fulfill its obligations should not be placed on the police department. We continue to recommend that all practical and available alternatives including awarding the contract to another vendor be made before contemplating the notion to have the duties placed with the Police. This we believe would be in the best interest of the County in this difficult economic time. zi We agree with the study, recommending against splitting of contractual services (i.e. enforcement and sheltering) for various reasons that are pointed out in the evaluation, such as: 1) Cause additional confusion among citizens regarding jurisdictional and contractual related responsibilities; 2) The established relationship between sheltering service and enforcement service would be hindered; and SUBJECT: RESPONSE TO NACA PROGRAM EVALUATION REPORT Page 3 3) Administrative services for both would cause an additional financial burden on the County. ci The Police Department is in agreement with the formation of an Animal Advisory Board, which would be responsible for investigating citizen complaints and concerns, however our role should be advisory in nature. Should you have any questions, please feel free to contact Major David Kawauchi, of our Area I Field Operations Division, at 961-2345.