BILL NUMBER: AB 34 AMENDED
BILL TEXT
AMENDED IN ASSEMBLY JUNE 1, 1999
AMENDED IN ASSEMBLY APRIL 26, 1999
AMENDED IN ASSEMBLY APRIL 5, 1999
AMENDED IN ASSEMBLY MARCH 4, 1999
AMENDED IN ASSEMBLY FEBRUARY 4, 1999
INTRODUCED BY Assembly Members Steinberg and Baugh
(Coauthors: Assembly Members Alquist, Calderon, Cedillo,
Gallegos, Hertzberg, Honda, Jackson, Keeley, Kuehl, Lowenthal,
Mazzoni, Romero, Strom-Martin, Thomson, and Washington)
(Coauthors: Senators Alpert, Baca, Chesbro, Johnston, Perata, and
Solis)
DECEMBER 7, 1998
An act to amend Sections 5802, 5806, and 5814 of the Welfare and
Institutions Code, relating to mental health, and
making an appropriation therefor , and declaring the urgency
thereof, to take effect immediately .
LEGISLATIVE COUNSEL'S DIGEST
AB 34, as amended, Steinberg. Mental health funding: local
grants.
Existing law provides for the allocation of state funds to
counties for mental health programs.
This bill would make various statements of legislative findings
and intent regarding the need to provide sufficient funds to counties
for adult mental health and related services.
Existing law requires the State Department of Mental Health to
establish service standards relating to mental health services.
These standards are required to include, among other things, plans
for services and evaluation strategies.
This bill would also require these standards to include
coordination and access to related medications, substance abuse
services, housing assistance, and vocational
rehabilitation , and veterans' services.
The bill would also provide for the award, by the department,
of planning grants , outreach grants, and service
expansion grants to counties for adult mental health programs.
The bill would appropriate funds to provide planning grants ,
outreach grants, and expansion grants for counties with
significant populations of homeless mentally ill persons through the
2006-07 2000-01 fiscal year.
This bill would declare that it is to take effect immediately as
an urgency statute.
Vote: 2/3. Appropriation: yes. Fiscal committee: yes.
State-mandated local program: no.
THE PEOPLE OF THE STATE OF CALIFORNIA DO ENACT AS FOLLOWS:
SECTION 1. The Legislature finds and declares all of the
following:
(a) Recent estimates indicate that there are 50,000 homeless
severely mentally ill Californians, including 10,000 to 20,000
homeless mentally ill veterans.
(b) Presently there are no financial incentives for counties
to provide outreach to homeless mentally ill adults to
increase the number of people they serve with severe mental illness.
(b)
(c) County dollars are generally fixed, so that treatment of
a higher than expected number of Medi-Cal recipients, who are
entitled to treatment by the county, reduces the amount of funds
available to serve other individuals.
(c)
(d) Counties should be provided an amount of funds to
establish systems of care for severely mentally ill adults, and
provide mental health services and related medications, substance
abuse services, housing assistance, vocational rehabilitation, and
other nonmedical programs necessary to stabilize homeless mentally
ill persons, get them into regular treatment or access to
veterans' services , and off the streets.
(d)
(e) When people who suffer from severe mental illness do not
have access to the services they require they frequently wind up in
the criminal justice system. However, those who receive extensive
community treatment are hardly ever much less
frequently incarcerated. The Department of Corrections is
expending $400 million annually for the incarceration and treatment
of people suffering from severe mental illness. In addition, the
Department of Corrections and the criminal justice system are
responsible for the placement of more than 3,000 of the total of
approximately 4,500 persons in the state mental hospitals, for an
additional annual state cost of over $300 million.
(e)
(f) People suffering from severe mental illness receive
sentences that are six times frequently
longer than those received by others convicted of the same crimes.
(f)
(g) There are no funds or programs that
insufficient funds or programs to ensure that people
suffering from severe mental illness can receive the treatment they
need.
(g)
(h) Increasing funding for an adult mental health system of
care will pay for itself many times over in
result in significantly reduced Department of Corrections,
criminal justice system, and local law enforcement expenditures for
people with severe mental illness.
SEC. 2. Section 5802 of the Welfare and Institutions Code is
amended to read:
5802. (a) The Legislature finds that a mental health system of
care for adults and older adults with severe and persistent mental
illness is vital for the success of mental health managed
successful management of mental health care in
California. Specifically:
(1) A comprehensive and coordinated system of care includes
community-based treatment, outreach services and other early
intervention strategies, case management, and interagency system
components required by adults and older adults with severe and
persistent mental illness.
(2) Mentally ill adults and older adults receive service from many
different state and county agencies, particularly criminal justice,
employment, housing, public welfare, health, and mental health. In a
system of care these agencies collaborate in order to deliver
integrated and cost-effective programs.
(3) The management of the risk for persons with severe mental
illness and related financial risks is
(3) The recovery of persons with severe mental illness and their
financial means are important for all levels of government,
business, and the community.
(4) System of care services which ensure culturally competent care
for persons with severe mental illness in the most appropriate,
least restrictive level of care are necessary to achieve the desired
performance outcomes.
(5) Mental health service providers need to increase
accountability and further develop methods to measure progress
towards client outcome goals and cost effectiveness as required by a
system of care.
(b) The Legislature further finds that the integrated service
agency model developed in Los Angeles and Stanislaus Counties and the
countywide systems model developed in Ventura County, beginning in
the 1989-90 fiscal year through the implementation of Chapter 982 of
the Statutes of 1988, provides provide
models for managing care for adults and older adults with severe
mental illness that are vital to the implementation and
success of the mental health managed care plan in California, and
have , and have successfully met the performance
outcomes required by the Legislature.
(c) The Legislature also finds that the system components
established in these three programs can be replicated and expanded
to additional clients in order to provide components
established in adult systems of care are of value in providing
greater benefit to adults and older adults with severe and persistent
mental illness at a lower cost in California.
(d) Therefore, using the guidelines and principles
developed under the demonstration projects implemented under the
adult system of care legislation in 1989, it is the intent of the
Legislature to accomplish the following:
(1) Encourage each county to implement a system of care as
described in this legislation for the delivery of mental health
services to seriously mentally disordered adults and older adults.
(2) To promote system of care accountability for performance
outcomes which enable adults with severe mental illness to reduce
symptoms which impair their ability to live independently, work,
maintain community supports, care for their children, stay in good
health, not abuse drugs or alcohol, and not commit crimes.
(3) Maintain funding for the existing programs developed in Los
Angeles, Stanislaus, and Ventura Counties as models and technical
assistance resources for future expansion of system of care programs
to other counties as funding becomes available.
(4) Provide sufficient funds for counties to establish outreach
programs and to provide mental health services and related
medications, substance abuse services, supportive housing or
other housing assistance, vocational rehabilitation, and other
nonmedical programs necessary to stabilize homeless mentally ill
persons or mentally ill persons at risk of being homeless
, get them off the street, and into treatment and recovery , or
to provide access to veterans' services that will also provide for
treatment and recovery .
SEC. 3. Section 5806 of the Welfare and Institutions Code is
amended to read:
5806. The State Department of Mental Health shall establish
service standards that ensure that members of the target population
are identified, and services provided to assist them to live
independently, work, and reach their potential as productive
citizens. The department shall provide annual oversight of
grants issued pursuant to this part for compliance with these
standards. These standards include but are not limited to:
(a) A service planning process that is target population based and
includes the following:
(1) Determination of the numbers of clients to be served and the
programs and services that will be provided to meet their needs. The
local director of mental health shall consult with the sheriff,
the police chief, the probation officer, the mental health
board, contract agencies, and family, client, ethnic and
citizen constituency groups as determined by the director.
(2) Plans for services including outreach, design of mental health
services, coordination and access to medications, substance abuse
services, housing assistance, supportive housing or other
and vocational rehabilitation vocational
rehabilitation, and veterans' services. Plans shall also
contain evaluation strategies, which shall consider cultural,
linguistic, gender, age, and special needs of minorities in the
target populations. Provision shall be made for staff with the
cultural background and linguistic skills necessary to remove
barriers to mental health services due to limited English speaking
ability and cultural differences.
(3) Provisions for services to meet the needs of target population
clients who are physically disabled.
(4) Provision for services to meet the special needs of older
adults.
(5) Provision for family support and consultation services,
parenting support and consultation services, and peer support or
self-help group support, where appropriate.
(b) Each client shall have either a clearly designated mental
health case manager or a multidisciplinary treatment team who is
responsible for providing or assuring needed services.
Responsibilities include complete assessment of the client's needs,
development of the client's personal services plan, linkage with all
appropriate community services, monitoring of the quality and
followthrough of services, and necessary advocacy to ensure each
client receives those services which are agreed to in the personal
services plan. Each client shall participate in the development of
his or her personal services plan, and responsible staff shall
consult with the designated conservator and, with the consent of the
client, consult with the family and other significant persons as
appropriate.
(c) The individual personal services plan shall ensure that
members of the target population involved in the system of care
receive age, gender, and culturally appropriate services, to the
extent feasible, that are designed to enable recipients to:
(1) Live in the most independent, least restrictive housing
feasible in the local community.
(2) Engage in the highest level of work or productive activity
appropriate to their abilities and experience.
(3) Create and maintain a support system consisting of friends,
family, and participation in community activities.
(4) Access an appropriate level of academic education or
vocational training.
(5) Obtain an adequate income.
(6) Self-manage their illness and exert as much control as
possible over both the day-to-day and long-term decisions which
affect their lives.
(7) Access necessary physical health care and maintain the best
possible physical health.
(8) Reduce or eliminate antisocial or criminal behavior and
thereby reduce or eliminate their contact with the criminal justice
system.
(9) Reduce or eliminate the distress caused by the symptoms of
mental illness.
(10) Reduce or eliminate the harmful effects of alcohol and
substance abuse.
SEC. 4. Section 5814 of the Welfare and Institutions Code is
amended to read:
5814. (a) (1) This part shall be implemented only to
the extent that funds are appropriated for purposes of this part. To
the extent that funds are made available, the first priority shall
go to maintain funding for the existing programs developed in Los
Angeles, Stanislaus, and Ventura Counties.
(2) The director shall establish a methodology for awarding grants
under this part consistent with the legislative intent expressed in
Section 5802, and in consultation with the advisory committee
established in this subdivision.
(3) The director shall establish an advisory committee for the
purpose of providing advice regarding the development of criteria for
the award of grants, and the identification of specific performance
measures for evaluating the effectiveness of grants. The committee
shall include, but not be limited to, representatives from state,
county, and community veterans' services and disabled veterans
outreach programs, supportive housing and other housing assistance
programs, law enforcement, county mental health and private providers
of local mental health services and mental health outreach services,
the Board of Corrections, the State Department of Alcohol and Drug
Programs, local substance abuse services providers, the Department of
Rehabilitation, and providers of local employment services. The
criteria for the award of grants shall include, but not be limited
to, all of the following:
(A) A description of a comprehensive strategic plan for providing
outreach, prevention, intervention, and evaluation in a cost
appropriate manner corresponding to the criteria specified in
subparagraph (C) of paragraph (1) of subdivision (b).
(B) A description of the local population to be served, ability to
administer an effective service program, and the degree to which
local agencies and advocates will support and collaborate with
program efforts.
(C) Memoranda of understanding for referral and coordination with
county probation program parolees and all severely mentally ill
individuals being released from custody of the Sheriff, the
Department of the Youth Authority, or the Department of Corrections.
Memoranda of understanding with local housing and redevelopment
agencies and other programs to provide housing assistance and other
appropriate interagency coordination.
(D) Mechanisms to award grants in a manner that supports better
performance by counties by restricting the availability and level of
grants for counties based on the extent to which the current number
of people receiving extensive community mental health services with
funds provided other than through this part in the county are
significantly below those of other comparably sized counties with
comparable resources, and by rewarding counties who are able to
provide extensive community mental health services to more people
within other available resources.
(b) As funds become available, this program shall be expanded to
provide training and funding for counties with significant
populations of homeless mentally ill persons consisting of
both of , which may include the following types
of grants:
(1) Planning Strategic planning
grants for new counties to create, and for existing system of care
counties to expand, an adult system of care that meets the
requirements of this part.
(2)
(A) Strategic planning grants shall require a strategy committee
composed of, but not limited to, representatives of the local
government and private providers of housing assistance, mental health
services, outreach for mental health services, veterans' services,
outreach to disabled veterans, law enforcement, substance abuse
services and employment services. An existing local committee may be
utilized to serve as this strategy committee if it includes or is
expanded to include the required representation.
(B) The strategy committee shall develop a comprehensive plan for
providing services pursuant to this part. The strategic plan shall
be suitable to form the basis for a performance-based contract with
the department.
(C) The strategic plan shall identify specific outcome and
performance measures and annual reporting that will allow the
department to evaluate, at a minimum, the effectiveness of the
strategies in providing successful outreach and reducing
homelessness, and involvement with local law enforcement, and other
measures identified by both the department and the strategy
committee. The outcome and performance measures shall include, but
not be limited to all of the following:
(i) The number of persons served, and of those, the number who are
able to maintain housing, and the number who receive extensive
community mental health services for at least four months in a
six-month period.
(ii) The number of persons with contacts with local law
enforcement and the extent to which local and state incarceration has
been reduced.
(iii) The number of persons able to demonstrate an increase in
stability of income including competitive employment.
(2) Four-year outreach service grants in accordance with a
contract between the state and approved counties that reflects the
number of anticipated contacts with people who are homeless or at
risk of homelessness, and the number of those who are severely
mentally ill and who are likely to be successfully referred for
treatment and will remain in treatment until successfully discharged.
(3) (A) Four-year service expansion grants in accordance
with a contract between the state and approved counties that provides
a formula for annual increased funding reflecting net increases in
the total annual number of severely mentally ill adults, as described
in Section 5600.3, who receive extensive community mental health
services in at least four consecutive months
months in a six-month period. As used in this section, "receiving
extensive community mental health services" means having a case
manager as described in subdivision (b) of Section 5806, having an
individual personal service plan as described in subdivision (c) of
Section 5806, and receiving service pursuant to that plan in four
months of a six-month period .
(B) The formula incentive funding provided pursuant to
subparagraph (A) shall be sufficient to provide mental health
services, medically necessary medications to treat severe mental
illnesses, alcohol and drug services, supportive housing and
other housing assistance, vocational rehabilitation, money
management assistance for accessing other health care and obtaining
federal income and housing support, accessing veterans'
services, and stipends to attract and retain sufficient numbers
of qualified professionals as necessary to provide the necessary
levels of these services. These grants shall, however, pay for only
the portion of the costs of those services not likely to be provided
by federal funds or other state funds. The amount of the grants
may be increased to reward counties that are providing extensive
community mental health services to significantly more severely
mentally ill adults, with funds other than those provided pursuant to
this part, relative to other comparable counties based on size,
location, and resources, and may be decreased to penalize counties,
and in some cases make them ineligible for participation in these
grants, if the numbers of severely mentally ill adults to whom a
county is providing extensive community mental health services
relative to its size, location, and resources is significantly below
that of other comparable counties.
(C) Grants provided pursuant to subparagraph (A) shall include
provisions measuring the base level of the number of people suffering
from severe mental illness who are arrested and serve in jail,
prison, or a state hospital as a result of their arrest in the
applicable county, and measuring how the grant and increased mental
health services provided by the grant reduces the portion of criminal
justice system resources required to be expended on people with
severe mental illness. Grants shall also include a projection of the
number of persons to be served annually. Beginning in the 2002-03
fiscal year, funding shall be based upon each county's successful
demonstration that the county has served the number of adults
projected for the prior fiscal year.
(D) Four-year outreach grants, provided pursuant to paragraph
(2), may be renewed upon their expiration provided that the
applicant county demonstrates to the satisfaction of the department
that the outreach services are successfully reaching and bringing
into treatment the numbers of persons projected in the contract. The
contract may be modified as necessary based upon the results being
achieved, both in the outreach program and in the program expansion
grant.
(E) Four-year program expansion grants provided pursuant to
subparagraph (A) may be renewed upon their expiration, provided that
the applicant county demonstrates to the satisfaction of the
department that the services provided are successfully reducing the
unmet mental health need and providing for reduction in the amount of
law enforcement, criminal justice system, and state corrections
expenditures that would otherwise be expended upon persons with
severe mental illness from the applicable county in accordance with a
process included in the grant for measuring these reductions and
setting forth benchmarks for reducing the expenditures as mental
health expenditures increase , and for meeting other performance
objectives established in the contract . The benchmarks for
reduction in incarceration rates shall require each county to reduce
incarceration rates by 20 percent or more over the four-year period.
In reviewing a county program for renewal of a grant, the department
may approve the renewal even if the performance benchmark
is unmet reduction in incarceration rates does not
meet the required performance, if the department finds that the
county program is meeting other performance benchmarks
established in the contract, and is successfully stabilizing
more people with severe mental illness, improving the community by
reducing homelessness, and achieving the maximum feasible reduction
in incarceration of people with severe mental illness.
(E)
(F) In any county in which the director determines the
program has not resulted in a reduction of criminal justice
expenditures or is not meeting other performance benchmarks
in accordance with the previous four-year grant, the director
may limit the funds available for a continuation of the grant, or an
expansion of the grant, or impose other conditions upon the grant in
order to improve the performance of the county in reducing the
incarceration of people suffering from severe mental illness.
(F)
(G) On or before November 1, 2001, and annually thereafter,
the director shall report to the Legislature regarding the impact of
grants funded pursuant to this section in reducing the incarceration
of people suffering from severe mental illness, and make
recommendations to the Legislature regarding how counties can improve
their performance and whether state policies regarding severe mental
illness should be changed. The director may establish standards and
a reporting format for county reports to the director on annual
progress toward attaining expansion grant goals.
(G) If the director determines pursuant to subparagraph (E) that
the funding levels set forth in Section 5 of the act adding this
subparagraph are not adequate to meet the need, the director shall
indicate the anticipated additional funding required and the funding
in the 2007-08 fiscal year and subsequent fiscal years may be
increased by amounts not to exceed fifty million dollars
($50,000,000) in any one subsequent fiscal year, provided that the
total appropriations in any one fiscal year shall not exceed five
hundred million dollars ($500,000,000).
(c) Contracts awarded pursuant to this part shall be exempt from
the Public Contract Code and the state administrative manual and
shall not be subject to the approval of the Department of General
Services.
(d) Notwithstanding any other provision of law, funds awarded to
counties pursuant to this part and Part 4 (commencing with Section
5850) shall not require a local match in funds. However, counties
shall demonstrate a maintenance of effort in adult and childrens
mental health services.
(e) No county shall reduce existing system-of-care or
Bronzan-McCorquodale service funds provided under this part and Part
4 (commencing with Section 5850) if adult or childrens system-of-care
funds are accepted by the county.
SEC. 5. (a) The sum of three twelve
million dollars ($3,000,000) ($12,000,000)
is hereby appropriated from the General Fund to the State
Department of Mental Health. Five hundred thousand dollars
($500,000) shall be allocated for training, by or through the
programs established pursuant to subdivision (a) of Section 5814
of the Welfare and Institutions Code . Five hundred thousand
dollars ($500,000) shall be allocated for training to counties in
homeless outreach to be offered through an organization with
significant success with homeless outreach programs, and two million
dollars ($2,000,000) shall be allocated for grants to counties for
implementation of paragraph (1) of subdivision (b) of Section 5814 of
the Welfare and Institutions Code during the 1999-2000 fiscal year.
Nine million dollars ($9,000,000) shall be allocated for
implementation of paragraphs (2) and (3) of subdivision (b) of
Section 5814 of the Welfare and Institutions Code for grants to
counties that enter into contracts to establish or expand their
programs on or before April 1, 2000.
(b) The sum of fifty million dollars ($50,000,000)
forty one million dollars ($41,000,000) is
hereby appropriated from the General Fund for the 2000-01 fiscal year
to the State Department of Mental Health for implementation of
paragraph (2) of subdivision (b) of Section 5814 of the Welfare and
Institutions Code.
(c) A sum not to exceed one hundred million dollars ($100,000,000)
is hereby appropriated for the 2001-02 fiscal year from the General
Fund to the State Department of Mental Health for implementation of
paragraph (2) of subdivision (b) of Section 5814 of the Welfare and
Institutions Code.
(d) A sum not to exceed one hundred fifty million dollars
($150,000,000) is hereby appropriated for the 2002-03 fiscal year
from the General Fund to the State Department of Mental Health for
implementation of paragraph (2) of subdivision
(b) of Section 5814 of the Welfare and
Institutions Code.
(e) A sum not to exceed two hundred million dollars ($200,000,000)
is hereby appropriated for the 2003-04 fiscal year from the General
Fund to the State Department of Mental Health for implementation of
paragraph (2) of subdivision (b) of Section 5814 of the Welfare and
Institutions Code.
(f) A sum not to exceed two hundred fifty million dollars
($250,000,000) is hereby appropriated for the 2004-05 fiscal year
from the General Fund to the State Department of Mental Health for
implementation of paragraph (2) of subdivision (b) of Section 5814 of
the Welfare and Institutions Code.
(g) A sum not to exceed three hundred million dollars
($300,000,000) is hereby appropriated for the 2005-06 fiscal year
from the General Fund to the State Department of Mental Health for
implementation of paragraph (2) of subdivision (b) of Section 5814 of
the Welfare and Institutions Code.
(h) A sum not to exceed three hundred fifty million dollars
($350,000,000) is hereby appropriated for the 2006-07 fiscal year and
an equal amount is hereby continuously appropriated for each fiscal
year thereafter from the General Fund to the State Department of
Mental Health for implementation of paragraph (2) of subdivision (b)
of Section 5814 of the Welfare and Institutions Code.
(i)
(c) The State Department of Mental Health shall allocate to
counties, from the amount appropriated pursuant to subdivision (a),
for the first year of initial grants to counties, the amount
projected by each county that would be required to fund first-year
costs pursuant to paragraph (2) of subdivision (b) of Section 5814 of
the Welfare and Institutions Code. If the total of the projected
first-year costs of all counties exceeds the maximum appropriation,
each county shall receive a percentage of the maximum appropriation
equal to that county's percentage of the total projected costs for
all counties.
(j) The
(d) It is the intent of the Legislature that the amounts
appropriated to the State Department of Mental Health , in
subdivisions (b) to (h), inclusive, for the second and all
subsequent fiscal years of funding for expansion of the county mental
health programs pursuant to Section 5814 of the Welfare and
Institutions Code, shall be allocated to counties based on the actual
amounts due under the contract with the applicable county for the
actual net increases in the number of persons served during the prior
fiscal year, adjusted by the amount that the allocation to the
county in the prior fiscal year was greater or less than the amount
required to fund the county for the actual increase in number of
persons served. If the total amount of the allocations due
to all counties would exceed the maximum allowable
appropriation previous year's appropriation by more
than fifty million dollars ($50,000,000) for that year, each
county shall receive a percentage of the maximum
a fifty million dollar ($50,000,000) increase over the previous
year's appropriation equal to that county's percentage of the
total costs for all counties for that year. If the
allocations to counties are reduced, the The
balance of each county's costs may shall
be paid to that county in the following fiscal year to the
extent funds are available.
(e) Of the amounts appropriated each year, five hundred thousand
dollars ($500,000) shall be allocated to departmental support for
administrative costs associated with the programs described in this
section.
SEC. 6. This act is an urgency statute necessary for the immediate
preservation of the public peace, health, or safety within the
meaning of Article IV of the Constitution and shall go into immediate
effect. The facts constituting the necessity are:
In order for the State Department of Mental Health to have the
program established and grants awarded within the time frames set
forth in this act, and to ensure that the state is able to begin
promptly achieving reductions in incarceration and homelessness in
accordance with this measure, it is essential that this act take
effect immediately.