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Office of Inspector General OFFICE OF STATE INSPECTOR GENERAL EXECUTIVE SUMMARY ----------------------------------- OSIG Investigation of the Pennsylvania Department of Aging’s Monitoring of County-Based Agencies That Investigate Allegations of Elder Abuse January 8, 2019 January 8, 2019 PENNSYLVANIA OFFICE OF STATE INSPECTOR GENERAL EXECUTIVE SUMMARY OSIG Investigation of the Pennsylvania Department of Aging’s Monitoring of County-Based Agencies That Investigate Allegations of Elder Abuse In May 2017, the Office of State Inspector General (OSIG) investigated whether: (1) the Pennsylvania Department of Aging (PDA) is properly monitoring Pennsylvania’s Area Agencies on Aging (AAAs), which are tasked with investigating allegations of abuse against older Pennsylvanians; and (2) PDA is enforcing its regulations, which require AAAs to categorize Reports of Need (RON) and complete subsequent investigations within the applicable timeframes, as required by Pennsylvania law and regulations. BACKGROUND PDA is responsible for directing the administration of the Older Adults Protective Services program for the prevention and treatment of elder abuse, neglect, exploitation, and abandonment. It also designs and implements a statewide reporting and investigative system to address the needs of older adults requiring protective services. Under Pennsylvania law, AAAs are required to conduct face-to-face interviews of alleged abused or neglected victims within 72 hours after receiving the RON, and complete investigations of the allegation(s) within 20 days after receiving the RON. COOPERATION FROM THE DEPARTMENT OF AGING During the course of the OSIG’s investigation, PDA’s Executive and program staff were cooperative and accommodating. PDA made staff available for interviews and provided requested information, documentation, and data within a timely fashion and in a manner that was conducive to the OSIG’s independent analysis. METHODOLOGY The OSIG reviewed PDA’s documentation from its monitoring reviews conducted in Dauphin, Delaware, Lawrence, and Westmoreland Counties (based on allegations that these counties particularly exemplified deficiencies in the AAAs’ handling of elder protective services cases and PDA’s oversight of the AAAs). The OSIG also interviewed 12 individuals with knowledge of the protective services program, consisting of current and former PDA employees; a Department of Human Services (DHS) employee who oversees Adult Protective Services; Temple University employees who offer training to AAA staff; and former employees of AAA protective services departments. Additionally, the OSIG reviewed PDA statewide database records of 18,275 RONs received by all AAAs in Fiscal Year 2016-2017. Pennsylvania Office of State Inspector General Page 1 of 6 Pennsylvania Office of State Inspector General January 8, 2019 Executive Summary SUMMARY OF FINDINGS The OSIG’s investigation resulted in six findings: Finding 1: In 20.4% of the 18,275 cases (3,724), the AAAs failed to conduct a face-to-face interview of the alleged neglected or abused older adult within the required 72 hours. The OSIG investigation found that AAAs failed to Table 1. Time Delay in 3,724 RONs for Which the conduct a face-to-face Face-to-Face Visit Exceeded 72 Hours interview of the alleged abused ----------------------- TIME IN WHICH FACE- NUMBER or neglected older adult in TO-FACE VISIT OF 3,724 of the 18,275 reviewed OCCURRED CASES cases (20.4% of the cases). 4 Days to 6 Days 1,603 The records show that the delay 7 Days to 10 Days 766 in some cases exceeded one 11 Days to 20 Days 619 year. See Table 1. 21 Days to 100 Days 495 101 Days to 364 Days 71 ** One Year or Greater 170 In another 4.8% percent ** NOTE: The OSIG recognizes that many of these entries might have resulted from an incorrect year being of the 18,275 cases (875), the entered into the PDA database for the interview date. For example, many of these records show the interview took 365 or 366 days to occur, which would result from entering the wrong year (2017 rather than 2016) into AAAs entered insufficient or the database in cases where the interview actually took place by the next day after the RON was received. incorrect data into the PDA database, preventing the OSIG (and PDA) from determining whether the face-to-face interview was completed within the required 72 hours. Finding 2: In 43% of the 18,275 cases (7,859), the AAAs did not determine whether the allegation of abuse was substantiated within the legally-required 20 days. The OSIG investigation found that in 7,859 Table 2. Time Delay in 7,859 RONs for of the 18,275 cases, the AAAs did not reach a Which the Determination Exceeded 20 Days determination within the legally-required 20 days. ----------------------- The “date of determination” is the date when the TOTAL TIME IN WHICH NUMBER OF DETERMINATION MADE CASES AAA determined whether the allegation(s) was 21 Days to 30 Days 2,186 substantiated or unsubstantiated. In more than 31 Days to 40 Days 1,269 1,500 of the cases, the delay was greater than 100 41 Days to 50 Days 920 days (See Table 2.) 51 Days to 64 Days 840 65 Days to 100 Days 1,095 In another 6.2% of the 18,275 cases (1,151), Greater Than 100 Days 1,549 the AAAs entered insufficient or incorrect data into the PDA database, preventing the OSIG (and PDA) from concluding whether the determination was made within the required 20 days. Pennsylvania Office of State Inspector General Page 2 of 6 Pennsylvania Office of State Inspector General January 8, 2019 Executive Summary Finding 3: PDA is neither requiring, nor offering, sufficient training to adequately prepare AAA staff to properly categorize and investigate RONs. PDA regulations identify three distinct job responsibilities within AAAs’ protective services unit: Caseworkers, Supervisors, and Intake Workers. PDA, through a contract with Temple University’s Institute on Protective Services (Temple), provides protective services training to AAA staff. However, PDA and Temple staff told the OSIG that none of the groups receive sufficient training. Intake Workers: AAA intake workers are often the first persons in the AAA informed of concerns regarding an older adult. They receive RONs to determine if Intake Workers must gather, at minimum: the older adult is in need of protective (1) the date and time of the report; services, and to determine the (2) the name and contact information of the reporter, unless withheld; (3) the name, age, and contact information of the older adult in need immediacy of the required response. of protective services; The current protective services intake (4) the nature of the incident that precipitated the RON; training is an Internet-based training (5) the nature and extent of the need for protective services module maintained by the (particularly if the older adult is in a life threatening situation); and Pennsylvania Association of AAAs; (6) the physical and mental status of the older adult in need. ------------------------------------------------ Temple does not participate in the Immediately following receipt of the RON, the intake workers must training. Intake staff receive one screen the RON to assign it to one of the referral categories identified initial training when hired, but are not in Finding 4 (i.e., Emergency, Priority, etc.). required to receive subsequent refresher training. Temple staff told the OSIG that the training is outdated and does not reference current versions of the Intake form. Temple said that the case studies used within the training are not relevant to the actual RONs that staff currently receive. Protective Services Caseworkers and Supervisors: PDA regulations require Caseworkers (also called investigators) and Supervisors (collectively called protective services staff) to complete (1.) a Basic Training that reviews the protective services regulations and fundamental investigative techniques; and (2.) an annual one-day In-Service (Enhancement) Training. The OSIG found that the 3½-day Basic Training does not test participants’ knowledge of the regulations. Comparatively, Temple staff told the OSIG that the State of Texas is considered the leading model in protective services training. Temple staff said that the Texas Department of Family and Protective Services requires 160 hours of core training and 18 hours of annual continuing education. Following the training, participants are asked 25 questions in a “basic knowledge assessment,” and failing investigators are not required to either retake the training, or re-answer the assessment questions. In 2016, Temple increased the number of annual Basic Training sessions that it offered from two to ten, which has resulted in smaller class sizes and higher evaluation scores for trainees. Temple told the OSIG that by contract, it must offer seven In-Service (Enhancement) Trainings and three Supervisory Trainings annually, but that in Fiscal Year 2017-2018, it will increase the number of Enhancement Training courses from seven to fifteen. Temple staff told the OSIG that the annual Enhancement Training is inadequate to ensure that protective services investigators possess the knowledge to perform at the highest standards. Pennsylvania Office of State Inspector General Page 3 of 6 Pennsylvania Office of State Inspector General January 8, 2019 Executive Summary Temple staff also said that some AAAs have little or no medical support on their cases; do not consult nurses on basic fundamentals; and do not review medical records during their investigations. Temple staff said that Pennsylvania child welfare regulations require child abuse investigators to undergo 120 Basic Training hours and 20 hours of annual continuing education; while Elder Abuse investigators receive a quarter of the education and training. Temple staff specifically recommended the following training changes to enhance the Pennsylvania protective services program: • Require a more thorough and expansive knowledge base for investigators within their first 18 months of conducting protective services investigations. • Use an educational mentoring program for the first 18 months for new investigators. • Require more than six annual hours of continuing education for Protective Services Investigators.
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