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HomeMy WebLinkAboutAgenda - 05-05-2009 - 7aORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: May 5, 2009 Action Agenda Item No. -] - Q SUBJECT: Domestic Violence: A Background Report on Question of Need for a Shelter in Orange County DEPARTMENT: County Manager's Office PUBLIC HEARING: (Y/N) No ATTACHMENT(S): 1) 6/24/08 Minutes Excerpt 2) Background Report INFORMATION CONTACT: Gwen Harvey, Assistant County Manager, 245-2307 Shoshannah Sayers, Director, Office of Human Rights and Relations, 960-3877 PURPOSE: To provide a background report to the BOCC on the incidence and alternatives to persons experiencing domestic violence in Orange County along with a proposal for helping to facilitate a community response. BACKGROUND: At its meeting on June 24, 2008 a delegation from the Commission for Women and the Family Violence Prevention Center (FVPC) of Orange County approached the BOCC on the need for a shelter facility to be located within Orange County to serve persons (men, women, and their children) dealing with domestic violence. The BOCC asked that staff return in the fall with background information and possible options for further intervention and involvement on behalf of the County organization. The Board also asked that the Human Services Advisory Commission be engaged since domestic violence had been its topic for its fall 2007 Forum. Circumstances and time constraints - as the BOCC dealt with other difficult topics - did not allow this topic to be addressed in a work session setting. County staff has now prepared a background report assessing historical experience in Orange County and is prepared to present these findings along with a proposal for BOCC consideration. Owning or operating a domestic violence shelter is not a core function of county governments. Typically domestic violence shelters are administered by strong non-profit organizations positioned to provide not only secure physical space but the necessary surrounding support services. Both space and service require substantial funds to acquire, develop, and sustain. Neither the FVPC, with a new Executive Director, or the Inter-Faith Council (IFC), involved in its own corporate campaign to relocate the men's shelter and community kitchen, has the capacity or resources present to assume direct responsibility for establishing a new facility for domestic violence victims. However, there is a sense that increased collaboration can occur, further research accomplished, and plans drafted for the future years. The Commission for Women has expressed its willingness, with staff support and assistance from Human Rights and Relations and technical consultation and guidance principally from the Family Violence Prevention Center, to help facilitate additional community-specific research and diverse stakeholder input. The charge would be to prepare a plan of action and implementation for the future that is not dependent on County-funding but draws principally from private and/or foundation financial backing. "Seed money" in the amount of $1,200 the BOCC made available as a result of Forum 2007 could be used by the Commission to cover extraordinary costs, such as experienced financial counsel on the fiscal realities of developing and operating a community-based domestic violence shelter. The Commission for Women is prepared to undertake this assignment acknowledging these parameters with concurrence from the BOCC. FINANCIAL IMPACT: There is no financial impact associated with receiving the background report on the need for a domestic violence shelter in Orange County. There would be costs of staff time, materials, and retained project management assistance if the BOCC charges the Commission for Women in furthering community-wide discussion. "Seed money" is available as a result of Forum 2007 to support the effort. Recommendations are predicted to carry substantial capital costs and on-going operational/maintenance costs. RECOMMENDATION(S): The Manager recommends the Board receive the report and provide guidance and direction as desired to County management. ~~t~cr~' ~~ Jan- ~~, ate' ~OCC /!/1,:~ w~..s 3 2 The Chair dispensed with the reading of the public charge. ~: ~ Public Comments a. Aflatters not on the Printed Agenda Shannon Jackson, Vice-Chair of Orange County Commission for Women, said that she recently attended a Woman's Advocacy Day. She said that she spoke with Senator Ellie . Kinnaird and Representative Verla Insko about the absence of a women's shelter in Orange County. They were both supportive of Bill SP 31 HB 43 n:ganiing a domestic violence appropriation. If passed, this bill wouk! allow funding for domestic violence programs, local initiatives, and would provide $2 million for matching grant funds for the construction of a domestic violence shelter. She introduced Dr. Arthrell Sanders, who read a letter regarding domestic violence. Dr. Arthrell Sanders read the letter. Scarred by Abuse Leiter `The 2008 Women's History Month celebration of the Orange County Commission for Women was entitled `Domestic Violence is NOT Just a Women's Issue.' This topic was espeaalty timely in light of recent news coverage of the plight of Johnston County resident Vemetta Cockefiam-Ellerbee, who survived a horrifying attack during which her ex-husband stabbed her repeatedly and murdered her daughter. The N8~0 reported that Vemetta `had taken a single step into the foyer when a knife struck her head, its blade breaking off inside. Ellerbee reached for another knife and stabbed her twice more, he then reached for a piece of broken glass ftom a shelf, shattered in the struggle. He tried to scratch her eyes out and shredded her hands instead as she shielded her eyes. She blacked out as Ellerbee choked her.' This case is a reminder that domestic violence can happen anywhere -even in quiet North Carolina counties like ours. According to the North Carolina Coalition Against Domestic Volence, 85 domestic violence murders took place in the last year. Nobody denies the existence of domestic violence; we just like to pretend that it doesn't happen in our neighborhoods. But we're wrong. And by denying the existence of domestic violence in our community, we are also denying survivors access to some necessary services. While Orange County has many excellent n:sources, including the Orange County Family Uolence Prevention Center, we lack one essential asset: a domestic violence shelter. Survivors of domestic abuse in Orange County must be ferried to Chatham or Durham, because they cannot be accommodated in their home county. White the State of North Carolina mandates that every county have an animal shelter, no such protection is afforded for Domestic Violence survivors. We must therefore take responsibility for providing our oWn solution. This conundrum has not escaped the notice of our elected officials. Mike Nelson, Moses Carey, and Ellie Kinnaird expressed concern about this issue at the Commission for Women's Domestic Violence event. Although we understand.that the County faces signficant budget challenges this year, the Orange County Commission for Women respectFulfy requests that the County Commissioners make a domestic violence shelter a top priority moving forward." Hudson Fuller is one of the founders of the Family Violence Prevention Center. She introduced three board members. Each year the Family violence Prevention Center serves over 600 individuals, mostly women, who are I"Wring in abusive situations. She said that at the time that a women comes forward ready to leave an abusive situation, the community should offer her and her children everything possible to help. What is most often needed is a safe 3 place to live. If there are no alternatives, the women will continue to live iri their abusive situations. !n the soc-month period of time between July 2007-January 2008, there were 63 clients needing a shelter and more than half had children. Of the 63, the center was only able to,place two in Project Homestart in Orange County. Eleven others were placed in neighboring counties. The cun'ent available patchwork of shelter options does not meet the needs of most of the clients. Project Homestart is usually full and even if there is room in shelters of neighboring counties, it is not a good option for victims who have jobs in Orange County and lack transportation, or who have children in the Orange County School System. She said that it comes down to funding. She said that a shelter is needed for domestic violence in this community. It is a community issue that requires a community response. She urged the Board to consider appointing a committee to examine the needs and funding required to support a shelter for domestic violence in Orange County. Commissioner Nelson asked that this be referred to staff and be brought back as an agenda item in the fall. Chair Jacobs agreed and asked that the Human Services Advisory Commission be engaged. b. Matters on the Printed Agenda (These matters were considered when the Board addressed that item on the agenda below.) 3. Proclamations/ Resolutions/ Saecial Presentations-NONE 4. Consent Agenda A motion was made by Commissioner Carey, seconded by Commissioner Foushee to approve those items on the consent agenda as stated below: a. Minutes The Board approved the minutes from February 8, March 18, 31, April 8, and May 20, 2008 as submitted by the Clerk to the Board. b. Apaointments (1) Affordable Housing Advisory Board - Reauaointment The Board reappointed Jabrina Robinson to a second full term ending June 30, 2011 to the Affordable Housing Advisory Board. (2) Commission for Women - Reaaaointments The Board reappointed Antonia Guadalupe Barbosa, Jennifer Frye, Rashida Fearrington, and Thelma Perkins to full terms ending June 30, 2011 to the Commission for Women. (3) Hillsborough Board of Adjustment - Reaaaointment The Board reappointed Tommy Sikes to the ETJ position to a second full term ending June 30, 2011 to the Hillsborough Board of Adjustment. c. Motor Vehicle Properly Tax Release/Refunds The Board adopted a refund resolution, which is incorporated by reference, related to 53 requests for motor vehicle property tax releases or refunds in accordance with North Carolina General Statutes. d. Proaerty Tax Releases The Board adopted a resolution, which is incorporated by reference, to release property values related to two (2) requests for property tax release in accordance with N.C. General Statute 105-381. e. Proaerty Tax Refunds C)RANGE Ct~UNTY .~:~;~ ..a. ' 4~~ ~- HUMAN RIGHTS ANQ RELA7~ONS To: Laura Blackmon, Gwen Harvey From: Shoshannah Smith Re: Domestic Violence in Orange County Date: March 20, 2009 Domestic Violence in Oran4e Countu Introduction According to the Orange County Family Violence Prevention Center, "Family/domestic violence is the use, or the threat of the use, of violence in an intimate partner relationship to attain and maintain power and control. Family/domestic violence is a pattern of intentionally violent and/or controlling behavior. Domestic violence often involves the use of physical force but can also include emotional abuse, sexual abuse, economic or financial abuse, isolation and stalkingl." All Domestic Violence (DV) incidents in Orange Count It is extremely difficult to come up with a comprehensive total of DV incidents or DV survivors, due to several factors. DV survivors enter "the system" from many different points of access. For example, some call the police; some go directly to the hospital for medical treatment; some call the Family Violence Prevention Center or Legal Aid for support services. Also, there is a question of whether a person is a DV survivor only if they were personally abused, or if the children and other affected friends and family are also survivors. Many of these secondary victims receive support services, such as support groups through organizations like the Family Violence Prevention Center. Finally, many agencies keep separate, unlinked databases on this information. These agencies include all law enforcement agencies within Orange County, UNC Hospital services, the Family Violence Prevention Center, the Women's Center, and Legal Aid of North Carolina. Because many survivors receive services from multiple agencies -each of which may keep its own caseload database, it can become difficult to determine if an aggregate of these diverse case logs contains duplicates. ' http://www.fvpcoc.org/whatshtml ~iJ The North Carolina Coalition for Women/Coalition Against Domestic Violence, a subsidiary of the NC Department of Administration, endeavors to keep accurate totals for each NC County. Below is a summary of their Orange County data for FY 200-082: • Orange County DV providers received 843 calls from DV survivors. • 663 survivors sought DV-related services. • The racial breakdown of these 663 DV survivors is as follows: o i59 White 0 g2 Black 0 g6 Hispanic 0 o American Indian 0 ><1 Asian 0 301 Unknown 0 4 Other • 628 females and 35 males sought services. Aggregated DV Service Provision:3 • Information: i32 clients served • Advocacy: 20>< clients served • Referrals: 548 clients served • Transportation: 53 clients served • Counseling: 345 clients served • Hospitalization:l • Court: 325 • Other: 1,266 • Support Groups available for adult survivors: 49 • Support Groups available for child survivors: o • Volunteer Hours Worked in OC DV service organizations: 8,46 Major Service Provider Data: In Orange County, the primary provider of DV support services is the Family Violence Prevention Center (FVPC). The following is a summary of their caseload in fiscal year 2009-08.4 • Clients Served: FVPC served 58~ clients, unduplicated. During the first 6 month of FY o8-09 they have served 364 clients, and if the demand for services continues at that rate [which they believe it will] they will serve over boo clients in the current fiscal year. • DV Protective Orders: FVPC assisted 112 individuals to file for DV Protective Orders. Based on numbers for the first half FY o8-09, they expect to exceed that number this year. z This data is available online at http://www.nccfwdvc.com/stats.htm 3 This data is available online at http://www.nccfwdvc.com/stats.htm a FVPC data was provided via email by FVPC Director Beverly Kennedy 2 • Under-reporting: I asked the FVPC Director to give me her professional estimate of the prevalence of unreported DV incidents in Orange County. Here is her reply: "an estimate of the number of unreported DV incidents in Orange County (survivors that do not choose to file police reports or get protective orders). This is a very difficult question to answer with any absolute statistical accuracy. However, based on my past experience in law enforcement, criminal trial practice & victim services I can estimate that between 30-50% of incidents are unreported at least for lst time incidents. I would be interested in the opinion of local law enforcement regarding this question. It is certainly a question with significant merit especially when planning for future victim service needs during the next io-i5 years." • Access to Shelter: Requests for shelter occur on a regular basis. In FY o~- 08 emergency shelter was provided for 27 women and 26 children and "other emergency housing" for 54 clients. These figures have increased for FY o8-09. Referrals are regularly made to shelters in Durham, Chatham, Wake and Alamance counties. When there is no availability at the shelters (as in over half of the cases in FY o~-08), FVPC provides safe housing for a limited period of time at alternative facilities, as their limited funding allows. • Staff estimates that FVPC is unable to find requested emergency housing for approximately i5o people each year. • See Attachment for background information on historical involvement by Inter-Faith Council (IFC) in addressing domestic violence issues through its Homestart division, formerly known as Project Homestart, in Chapel Hil. Additional Thoughts from Local Service Providers Beverly Kennedy, Executive Director of the OC Family Violence Prevention Center, asked me to convey the following additional information in this memo. "To responsibly and accurately plan for more DV-related service funding in Orange County I would look not only to data/numbers but also to what long term research has, or should have, taught us about the effect that witnessing DV has on children [from birth to adulthood]. I quote a former colleague who heads the Child Witness to Violence Project at Boston Medical Center who said, "It was a painful experience to learn that our youngest children's first experiences with violence are at the feet of their adult care givers." While we, as a community, must provide for immediate victim needs it is critical, if we are ever to reduce numbers & the need for services, that we begin to focus on prevention and other services for our children. To do this successfully we must do it collaboratively through victim services, law enforcement, health & hospitals, our schools and any other identified community resources." 3 Additional Orange County Suuport and Services Through the Governor's Crime Commission, the Orange County Sheriff s Department receives a domestic violence grant. These funds are traditionally used to address intervention, enforcement, and aggressive prosecution of offenders. Through its annual Outside Agency Funding process, the BoCC funds the following nonprofits that assist women and children: • Orange County Family Violence Prevention Center • Orange County Rape Crisis Center • Planned Parenthood of Central North Carolina The Women's Center The Interfaith Council (Homestart) The Human Services Advisory Committee conducted its 200 Fall Forum, entitled "Domestic Violence - It Hurts the Whole Community." The BoCC authorized the use of participant registration fees ($i,2oo) to "seed" afollow-up activity. These funds remain uncommitted. Conclusion In Orange County, it appears that the number of DV survivors seeking services is on the rise, while the current economic situation prohibits additional funding to meet the increased need for service provision. Orange County has many excellent services for Domestic violence survivors, including the Family Violence Prevention Center and free legal services available in cooperation with Legal Aid of North Carolina's regional office based in Pittsboro (Chatham County). 4 Inter-Faith Council of Orange County -Project Homestart In January 1994 the BOCC adopted a resolution establishing a Family Support and Shelter Task Force to review and make recommendations for a shelter for homeless women and children. On February 6, 1995 the BOCC received a report from the Task Force identifying possible sites for a transition housing project with a service description that included "be operated as a collaborative project between the Inter-Faith Council (IFC) and the Orange-Durham Coalition for Battered Women". Housing and Urban Development (HUD), the NC Housing Finance Agency, the County capital investment program and private donations were cited as sources of funding for project development. On-going cooperation of an array of community public and private non-profit agencies was cited as necessary to provide the operational funding for sustained delivery of a comprehensive array of human services. The BOCC required the IFC and Coalition for Battered Women to present a plan for generating revenues for the project and a site plan for the proposed development. IFC and the Coalition were awarded a $1.3 million dollar Supportive Housing grant from HUD for the construction of the transitional housing. In June 1995 the BOCC received a project plan from IFC and the Coalition and approved a lease agreement with the IFC for Project Homestart on Homestead Road in Chapel Hill. The lease became effective July 1, 1995 with a 25-year term. Section 8 is shown below: "IFC shall not assign, sublet, or license the lease premises without the prior written consent of County, which shall not unreasonably withheld. County consents to a sublease to the Orange-Durham Coalition for Battered Women, Inc. of that portion of the leased premises and the Project to be used by the Orange-Durham Coalition for Battered Women, Inc. who are victims of domestic violence. In the event IFC requests and County approves assignment, subletting or licensing of the leased premises, IFC will ensure that its tenant is subject to the same terms and conditions which are reflected in this lease. " In the spring of 1997 IFC began construction of three (3) 3600 sq. ft. transitional housing units; each unit to be occupied by five families. IFC was to operate two units for homeless families and the Coalition was scheduled to operate the third unit for families who were homeless as a result of domestic violence. IFC began operating two of the transitional housing units on July 1, 1998. The Coalition did not begin operation of the third transitional housing unit in July 1998 as planned. On May 14, 1999 the IFC informed the County Manager that the Coalition had not fulfilled the terms of the sublease agreement between IFC and the Coalition for the operation of the third unit for two reasons: (1) The Coalition was unable to commit to the required level of staffing for site supervision and safety, and (2) The Coalition was unable to verify the availability of their required local match (25%) to receive the HUD grant funds for unit operations. ~~ After lengthy discussion HUD directed IFC to move forward with occupying the third unit. IFC formally terminated its partnership planning and sublease arrangement with the Coalition in June 1999. IFC indicated to HUD and the County in writing their willingness to fulfill the community obligation to serving victims of domestic violence through its overall operation and on-going objectives of Project Homestart. (See letter from IFC Board Chair attached.) The Coalition and other non-profits were encouraged to provide , IFC with consultation, referrals and in-kind services to benefit Homestart residents. A formal amendment to the IFC lease with the County for the Homestead property was never sought since IFC did not plan to substitute another tenant for the stated purpose in the third unit. IFC indicates today it has continued to collaborate fully with community partners, especially the Family Violence Prevention Center (FVPC), in service and support to women and children affected by domestic violence in Orange County. The 25-year lease agreement expires in 2020. 03-31-09;02:18PM; .~ _~ 11 ;919-929-3353 Inter-Faith Counctt for social aerv~ce Rita Gray, President IFC Board of Directors 2505 Homestead Road Chapel Hill, NC 27514 ccmoran C~ bellsouth.net (919) 932-6025, fax: (919)929-8649 July 13, 1999 Julie Edmunds, Chair Board of Directors Orange/Durham Coalition for Battered Women, Inc. PO Box 688 Durham, NC 27702 Dear Ms. Edmunds: As you are aware, a letter dated June 14, 1999 was sent to your organization from Charles T. Ferebee, Director of the Division of Community Planning-and • Development of the U.S. Department of Housing and Urban Development. In this ' letter he advised Ms. Sholes-Ross, the Coalition Board Chair, that HUD had "~~ directed the Inter-Faith Council to initiate plans to provide transitional housing for • ~ victims of domestic violence and their families at Project Homestart. In his words he wrote: "In the interest of the program, we are directing the Inter-Faith Council to move forward with occupying the third building as soon as possible." This building was to have been used~by the Coalition•for the purposes Mr. Ferebee outlined in his June 14th letter. Mr: Ferebee's June 14~' letter followed the Coalition's April 28 letter to the Inter- Faith Council that indicated that the Coalition °is not in a position to meet the conditions set out in IFC's April 13 memorandum ... " Those conditions, regarding security and stafFng, were requested, with HUD's input and approval, in order to assure the safety and •security of all residents that would be served in Project Homestart programs. The determination made by the Coalition that it was not in a position to pertonn the specified conditions effectively terminated any justification for the Coalition to use any portion of the Project Homestart facility. The determination made by the Coalition was also what brought about the need for the• IFC to take over full responsibility for the portion of the Project Homestart facility intended for the provision of services for victims of domestic violence and their families. For many months now, it has been apparent that for reasons that remain undisclosed, the Coalition is not in a position to fulfill its objectives to provide •~;~ transitional housing for domestic violence victims and their families set out in our discussions and the HUD grant. ._~ 03-31-09;02:18PM; ,.~•- ;919-929-3353 ~~• ~.:. ~- • Thus at HUD's request, in order to fulfill the requirements of the HUD grant, that the proceeds be used to provide transitional housing services• to vicfims of domestic violence and their families, the IFC has taken on the Coalition's obligations, and has begun the use of the third building for these purposes. While the Coalfion's financial obligations under the grant are not necessarily terminated, the IFC has taken on the responsibility of operating the third facility. We are very willing to work with the Coalition to the extent found useful for serving the best interests of this population and the needs•of our staff, and we welcome your help or suggestions, Sincerely, Rita Gray, President Inter-Faith Council for Social Service _J cc: Dr. Nancy Costello, Coalition Board of Directors Vanessa G. Carroll, Executive Director Pam Smith, IFC ice-President Charles T. Ferebee; Director of Community Development and Planning Albert Kittrell, Assistant County Manager .j