[Senate Hearing 110-709]
[From the U.S. Government Publishing Office]
S. Hrg. 110-709
TRANSFORMING MENTAL HEALTH AND SUBSTANCE ABUSE SYSTEMS OF CARE:
COMMUNITY INTEGRATION AND RECOVERY
=======================================================================
HEARING
OF THE
COMMITTEE ON HEALTH, EDUCATION,
LABOR, AND PENSIONS
UNITED STATES SENATE
ONE HUNDRED TENTH CONGRESS
FIRST SESSION
ON
EXAMINING COMMUNITY INTEGRATION AND RECOVERY, FOCUSING ON TRANSFORMING
MENTAL HEALTH AND SUBSTANCE ABUSE SYSTEMS OF CARE
__________
MAY 8, 2007
__________
Printed for the use of the Committee on Health, Education, Labor, and
Pensions
Available via the World Wide Web: http://www.gpoaccess.gov/congress/
senate
U.S. GOVERNMENT PRINTING OFFICE
35-373 PDF WASHINGTON DC: 2009
---------------------------------------------------------------------
For Sale by the Superintendent of Documents, U.S. Government Printing Office
Internet: bookstore.gpo.gov Phone: toll free (866) 512-1800; (202) 512�091800
Fax: (202) 512�092104 Mail: Stop IDCC, Washington, DC 20402�090001
COMMITTEE ON HEALTH, EDUCATION, LABOR, AND PENSIONS
EDWARD M. KENNEDY, Massachusetts, Chairman
CHRISTOPHER J. DODD, Connecticut MICHAEL B. ENZI, Wyoming,
TOM HARKIN, Iowa JUDD GREGG, New Hampshire
BARBARA A. MIKULSKI, Maryland LAMAR ALEXANDER, Tennessee
JEFF BINGAMAN, New Mexico RICHARD BURR, North Carolina
PATTY MURRAY, Washington JOHNNY ISAKSON, Georgia
JACK REED, Rhode Island LISA MURKOWSKI, Alaska
HILLARY RODHAM CLINTON, New York ORRIN G. HATCH, Utah
BARACK OBAMA, Illinois PAT ROBERTS, Kansas
BERNARD SANDERS (I), Vermont WAYNE ALLARD, Colorado
SHERROD BROWN, Ohio TOM COBURN, M.D., Oklahoma
J. Michael Myers, Staff Director and Chief Counsel
Katherine Brunett McGuire, Minority Staff Director
(ii)
?
C O N T E N T S
__________
STATEMENTS
TUESDAY, MAY 8, 2007
Page
Reed, Hon. Jack, a U.S. Senator from the State of Rhode Island... 1
Prepared statement........................................... 3
Enzi, Hon. Michael B., a U.S. Senator from the State of Wyoming,
opening statement.............................................. 4
Kennedy, Hon. Patrick J., a U.S. Representative from the State of
Rhode Island................................................... 5
Prepared statement........................................... 8
Cline, Terry, Administrator, Substance Abuse and Mental Health
Services Administration, U.S. Department of Health and Human
Services, Rockville, Maryland.................................. 15
Prepared statement........................................... 16
Murray, Hon. Patty, a U.S. Senator from the State of Washington,
prepared statement............................................. 25
Murkowski, Hon. Lisa, a U.S. Senator from the State of Alaska.... 29
Burr, Hon. Richard, a U.S. Senator from the State of North
Carolina....................................................... 30
Halpern, Lisa, Consumer, Member of the National Alliance on
Mental Illness (NAMI), Dorchester, Massachusetts............... 34
Prepared statement........................................... 35
McDaniel, Rodger, Deputy Director, Wyoming Mental Health and
Substance Abuse Services Division, Cheyenne, Wyoming........... 39
Prepared statement........................................... 40
Allebaugh, Terry Lee, Executive Director, Housing for New Hope,
Inc., Durham, North Carolina................................... 49
Prepared statement........................................... 50
ADDITIONAL MATERIAL
Response to Questions of Senator Enzi by:
Lisa Halpern................................................. 59
Rodger McDaniel.............................................. 59
Terry Allebaugh.............................................. 61
Response to Questions of Senator Burr by Terry Cline............. 62
(iii)
TRANSFORMING MENTAL HEALTH AND SUBSTANCE ABUSE SYSTEMS OF CARE:
COMMUNITY INTEGRATION AND RECOVERY
----------
TUESDAY, MAY 8, 2007
U.S. Senate,
Committee on Health, Education, Labor, and Pensions,
Washington, DC.
The committee met, pursuant to notice, at 10 a.m. in Room
SD-628, Dirksen Senate Office Building, Hon. Jack Reed,
presiding.
Present: Senators Reed, Murray, Enzi, Burr, and Murkowski.
Opening Statement of Senator Reed
Senator Reed. Let me call the hearing to order and first
say that Senator Kennedy very much wanted to be here today, but
he has been asked to represent the United States at a very
historic meeting in Northern Ireland where, for the first time
in our recollection, two opposing forces have come together to
form a unity Government, and I can't think of anyone more
appropriate to represent this country than Chairman Kennedy.
But, we're lucky to have my friend and colleague, Patrick
Kennedy, who will be our first witness, so let me make an
opening statement and then turn it over to Senator Enzi, and
then recognize Congressman Kennedy.
I'm pleased to chair this morning's Senate HELP Committee
hearing on SAMHSA, or the Substance Abuse and Mental Health
Services Administration, and its upcoming reauthorization by
this committee.
It has been 7 years since Congress last reauthorized
SAMHSA. With this reauthorization, we have the opportunity to
assess the success of the programs we initiated in the last
SAMHSA reauthorization, as well as address some of the new
challenges that SAMHSA faces. I look forward to learning more
about how SAMHSA has carried out its mission since that time,
and the types of issues that SAMHSA is currently facing and
addressing. And, I also look forward to working with the
Chairman, Ranking Member, Senator Enzi, and other HELP
Committee colleagues as we consider the various initiatives
during the SAMHSA reauthorization process.
I'm particularly interested in improving the network of
community health providers, to strengthen the links between
housing and supportive services for homeless populations with
substance abuse and mental health disorders, and to explore
ways to enhance the workforce pipeline in the mental health and
substance treatment fields.
SAMHSA provides valuable services to help prevent, detect
and treat people with, or at risk for, mental health or
substance abuse disorders. This is a significant task on many
levels. It is estimated that more than 44 million Americans
have a mental disorder, 22 million Americans have a substance
abuse problem, and 7 to 10 million have co-occurring mental
health and substance abuse disorders.
The importance of SAMHSA funding services is sadly
underscored by the recent tragic events at Virginia Tech.
Mental illness and substance abuse are major National problems,
and they deserve our close attention and strong support.
Substance abuse and mental health problems can have a
detrimental effect on an individual's personal and professional
relationships, as well as on their overall physical health. A
recent report examining eight States, including my home State
of Rhode Island, found that Americans suffering from mental
illness die between 10 and 25 years sooner than average
Americans. Although the mentally ill have high accident and
suicide rates, about three out of five die from mostly
preventable diseases.
The report also reveals that persons with mental illness
were far more likely to smoke or have substance abuse problems.
Yet, unlike a broken bone or other physical illness, those who
suffer from mental illness and substance abuse problems often
go undetected, even by those closest to them.
SAMHSA is charged with the critical, and sometimes
difficult task of improving our systems of detection and
treatment, so that we can help people before their problems get
worse. And while we've made significant progress toward
reducing the stigma associated with mental health and substance
abuse problems, we have more to do. The services that SAMHSA
provides are vital to detecting and combating the problems
associated with mental illness and substance abuse. Congress
has an opportunity to improve SAMHSA's ability to serve the
millions of Americans who suffer as a result of mental illness
and substance abuse.
This morning, we will hear from three panels, including my
distinguished colleague and friend, Representative Patrick
Kennedy, of Rhode Island, and then we'll have a second panel
with Dr. Terry Cline, the SAMHSA Administrator, and our third
panel will be composed of Lisa Halpern, Program Director for
the Dorchester Bay Recovery Center; Rodger McDaniel, Executive
Director of the Wyoming Mental Health and Substance Abuse
Service Division; and Terry Lee Allebaugh, Executive Director
of Housing for New Hope, Incorporated.
During this hearing, I hope we can gain, and I do believe
we will gain, a deeper understanding of SAMHSA and I look
forward to the testimony of all of our witnesses. Let me
recognize now, the Ranking Member, Senator Enzi.
Senator.
[The prepared statement of Senator Reed follows:]
Prepared Statement of Senator Reed
Good morning. I am pleased to chair this morning's Senate
HELP Committee hearing on SAMHSA, or the Substance Abuse and
Mental Health Services Administration and its upcoming
reauthorization by this committee.
It has been 7 years since Congress last reauthorized
SAMHSA; with this reauthorization we have the opportunity to
assess the success of the programs we initiated during the last
SAMHSA reauthorization as well as address some of the new
challenges SAMHSA faces. I look forward to learning more about
how SAMHSA has carried out its mission since that time, and the
types of issues that SAMHSA is currently facing and addressing.
I also look forward to working with the Chairman, Ranking
Member and other HELP Committee colleagues as we consider the
various initiatives during the SAMHSA reauthorization process.
I am particularly interested in improving the network of
community mental health providers, strengthen the links between
housing and supportive services for homeless populations with
substance abuse and mental health disorders, and exploring ways
to enhance the workforce pipeline in the mental health and
substance treatment fields. Chairman Kennedy regrets his
absence today from such an important hearing but he has been
asked to represent the United States in the historic proceeding
taking place in Northern Ireland with their peace agreement.
SAMHSA provides valuable services to help prevent, detect
and treat people with or at risk for mental health or substance
use disorders. This is a significant task on many levels. It is
estimated that more than 44 million Americans have a mental
disorder, 22 million Americans have a substance abuse problem
and 7 to 10 million have co-occurring mental health and
substance use disorders.
The importance of SAMHSA funded services is sadly
underscored by the recent tragic events at Virginia Tech.
Mental illness and substance abuse are major national problems
and they deserve our close attention and strong support.
Substance abuse and mental health problems can have a
detrimental affect on an individual's personal and professional
relationships as well as on their overall physical health.
A recent report examining 8 States, including my home State
of Rhode Island, found that Americans suffering from mental
illness die between 10 and 25 years sooner than average
Americans. Although the mentally ill have high accident and
suicide rates, about 3 out of 5 die from mostly preventable
diseases. The report also revealed that persons with mental
illness were far more likely to smoke or have substance abuse
problems.
Yet, unlike a broken bone or other physical illnesses,
those who suffer from mental illness and substance abuse
problems often go undetected, even by those closest to them.
SAMHSA is charged with the critical and sometimes onerous
task of improving our systems of detection and treatment so
that we can help people before their problems get worse.
While we have made significant progress toward reducing the
stigma associated with mental health and substance abuse
problems, we have more distance to cover. The services that
SAMHSA provides are vital to detecting and combating the
problems associated with mental illness and substance abuse and
Congress has the opportunity to improve SAMHSA's ability to
serve the millions of American's who suffer as a result of
mental illness and substance abuse.
This morning we will hear from three witness panels that
include my distinguished colleague Representative Patrick
Kennedy, Dr. Terry Cline, SAMHSA Administrator, Lisa Halpern,
Program Director of the Dorchester Bay Recovery Center, Rodger
McDaniel, Executive Director, Wyoming Mental Health and
Substance Abuse Services Division, and Terry Lee Allebaugh,
Executive Director, Housing for New Hope, Inc.
During today's hearing, I hope we can gain a better
understanding of SAMHSA's role and needs as well as have an
opportunity to discuss recommendations for the committee as we
begin the SAMHSA reauthorization process.
I look forward to the testimony of our witnesses and thank
you all again for being here this morning.
Opening Statement of Senator Enzi
Senator Enzi. Thank you, Mr. Chairman, and I want to thank
you and Senator Kennedy for holding this important hearing
today. I want to thank the witnesses for taking their valuable
time to come and share their ideas with us, and then hopefully
to answer some questions, and then even have some follow up
written questions, probably, and usually get into a lot more
detail.
I want to particularly thank my friend Rodger McDaniel for
traveling here from Wyoming to represent the Wyoming Department
of Health, glad to have you here.
I'm pleased to be working in a bipartisan fashion to
reauthorize the Substance Abuse and Mental Health Services
Administration, known as SAMHSA. Congress established SAMHSA to
strengthen the Nation's healthcare delivery system with regard
to the prevention and treatment of mental illness and substance
abuse and also to provide emergency disaster assistance and to
combat homelessness.
The issues we face in the reauthorization of SAMHSA are
among the most important issues Congress can address, that is,
the health and well-being of our citizens. I'm gratified that
we've come a long way in addressing these problems through the
many successes of SAMHSA, in recognizing that mental health and
substance abuse are illnesses that are treatable. The committee
needs to assess SAMHSA's operation, and make changes to ensure
that it's operating at the highest possible level of
efficiency. It currently measures outcomes, and that will be a
great benefit as we work through reauthorization.
As many of my colleagues are aware, today's system of
services of mental health, substance abuse and homelessness is
fragmented and disconnected. These challenges will be addressed
in the reauthorization process. States and local communities
can provide the best approach to prevention and treatment,
because they're on the front lines, and in the best position to
develop creative solutions.
I'm also interested in evaluating the flexibility of the
grant programs, as well as accountability measures. We need to
ensure that scarce Federal dollars are focused where the
greatest need exists.
In the light of recent tragedies like Hurricane Katrina,
and Rita, and the events at Virginia Tech last month, it's
important, that we review the role of SAMHSA in disaster and
emergency response. SAMHSA serves a key role in events like
these, so flexibility in the use of these funds is key to
ensuring that the programs can adapt to changing needs, or
target specific situations.
I must also mention the epidemic of methamphetamine, or
meth, in the United States. Statistics show that approximately
5 percent of the population in the United States is addicted to
it. Meth is a highly addictive drug, and easily produced in
clandestine laboratories with inexpensive, over-the-counter
products. Wyoming is among the top third of States with persons
age 12 or older using meth.
Wyoming students have been hit hard. Drug-related arrests
have doubled in Wyoming, with meth playing a large role in the
rising rate in crime, domestic violence, and poor health. Rural
communities and Native Americans have been especially hard hit.
Eradication of this epidemic is in our grasp, and I hope to
explore SAMHSA's role in this critical effort. Fixing this
problem will require both short- and long-term strategies.
Again, I want to thank the witnesses for their
participation in today's hearing, and I look forward to the
testimony.
Senator Reed. Thank you very much, Senator Enzi.
And now, it's my pleasure to introduce my colleague, and my
friend from Rhode Island, Congressman Patrick Kennedy. Patrick
is in his seventh term, serving the people of the First
District of Rhode Island. He is a member of the Appropriations
Committee, and has been a tireless advocate for important
projects to my State and also for those issues affecting the
mental health of the entire country. He has demonstrated over
his tenure in the U.S. Congress the commitment and the passion
to help people, particularly those who are struggling with the
issues of mental health and substance abuse.
We have your written testimony, Congressman, your excellent
written testimony, and feel free to summarize, and welcome
today to the committee.
Statement of Representative Kennedy
Representative Kennedy. Thank you very much, Senator Reed,
and Senator Enzi. Thank you very much for inviting me to
testify.
I particularly want to thank Senator Reed for inviting me
and appreciate your being the committee chairman today. I'm
proud to have a fellow Rhode Islander holding the gavel today.
Although I'm very fond of the committee chairman who's usually
at the gavel----
[Laughter.]
I'm very proud that you're, today, holding the gavel.
And I want to thank Senator Enzi for his leadership on the
parity legislation in the Senate and look forward to working
with him on an opportunity to pass historic legislation in the
Congress this year to provide mental health parity in this
country for all Americans who are, right now, discriminated
against in their mental health insurance coverage.
When you get right down to it, we really do a terrible job
in this country--as you pointed out, Senator Enzi--of
delivering mental health and substance abuse care in this
Country. Because, as you pointed out, it's often fragmented,
and we do a very poor job, it's little to do with SAMHSA's
people, because they're very dedicated, and they're swimming
upstream in a culture and a Government that undervalues mental
health and substance abuse treatment, very simply because, the
fact is, of the stigma. And those that don't get the benefit
from the latest science.
So, what I would like to recommend today, is that we--
Congress--in reauthorizing SAMHSA, should ensure that the
Agency be a force for transforming this fragmented and broken
mental health and substance abuse treatment system of ours, by
bringing this segregated, entirely divorced from the rest of
the healthcare system, mental health and substance abuse and
integrating it into the overall, primary healthcare system that
we have.
And I--with that perspective in mind, I suggest three
overarching themes for our focus: driving the development and
use of evidence base in the delivery of mental health and
substance abuse treatment, dramatically improving the
coordination of mental health and substance abuse and primary
care, and expanding our investment in prevention.
These are the dynamics that will help in making sure that
SAMHSA acts as the lever of change in acting as a real catalyst
for making the overall system work to the advantage for
everybody.
I've elaborated in my testimony on several specific ideas
for reauthorization, but as Senator Reed pointed out, I'll
really get into a few specific examples.
The permanent Commission for Evidence-Based Mental Health
and Substance-Use Health Care. This goes to the evidence-based
part that I spoke of. This would be an expert, nonpolitical
panel that would be responsible for strengthening,
consolidating, coordinating, and synthesizing the dissemination
of evidence-based practices.
As you know, Senator Enzi, the big criticism of us bringing
parity into mental health care, as people say, ``Well, we want
to make sure we get what we pay for.'' Well, we ought to be
getting what we pay for in regular health care, and frankly,
the evidence shows us that we barely get 50/50 evidence-based
medicine in normal health care in our system, forget mental
health care.
But, the fact is, when we do get parity, we ought to get
the evidence-based, and that's why we should set up a
Commission to make sure that whenever there's delivery of
substance abuse and mental health services, that it is the
latest and best knowledge in how to deliver those services.
By benchmarking this evidence-based practice, and giving
them the Good Housekeeping Seal of Approval, this Commission
could provide the guidance to the whole entire field, as well
as the training and professional development, so that anybody
in this country going to get the treatment that they need could
be sure that they are getting the latest and best of that
treatment. It also would help us establish priorities in areas
of future research.
Also, just last week, USAToday ran a front-page story on a
new report that individuals in the public mental health system
die, on average, 25 years earlier than the general population,
as Senator Reed mentioned in his opening remarks. This is not
just based on suicide, but poorly-managed general health care,
and chronic illnesses like diabetes and heart disease.
And, improving the coordination amongst mental health,
substance abuse and primary care is the key to this. If you
treat someone with mental illness, you also help cut down on
the costs of someone, treating someone with diabetes and other
chronic illnesses. That's why integrating the care of mental
illness, along with primary care and substance abuse is so
crucial.
So, without opening the doors to merging block grants, I
would propose that we use block grants to allow providers to do
a better job to deliver the most effective, integrated care to
individuals who have co-occurring disorders. Right now,
substance abuse is delivered through one block grant, mental
health is delivered through another block grant--we need to
point out, that as Senator Reed mentioned, so many of substance
abuse disorders and mental health disorders are often co-
occurring disorders. But you can't expect someone to get
substance abuse treatment here, and mental health treatment
across town. You have to allow more flexibility for a substance
abuse provider to treat not only the substance abuse problem,
but the mental health problem, and the mental health provider
to do the same for the person with the mental illness, but
who's also suffering from a substance abuse problem.
There's got to be greater flexibility in dollars. Right now
those dollars are dis-apportioned. We need to look at the way
those dollars are apportioned, and make sure they go to where
they are best suited to treat the people who are most in need,
as you pointed out, Senator Enzi, where they're greatest in
need, and I would recommend that.
And finally, establish an ongoing inter-agency mental
health working group to collaborate around these issues, so
that we can continue to meet the consumers' needs, in making
sure that we have this ending of the disconnect between the
barriers between substance abuse and the mental health base
that currently exists.
Finally, prevention needs to be at the cornerstone of any
future reauthorization, and prevention means school-based
behavioral health, and it also means making sure that we do a
better job at preventing. And, by preventing, we know that if
we reach a family that's at high risk--if a child comes from a
family where the parents have substance abuse problems
themselves, where the parents are in jail, where the parents
have domestic violence, where the parents are in severe
poverty--you know if those children come from those four
characteristics of a family, those children are umpteen times
more likely to have special education problems, substance abuse
problems, alcohol problems, and criminal justice problems down
the road. It's just shown by the social science evidence.
So, you don't have to provide intervention for all
families, we don't have the budgets for it, but you do have to
provide interventions for those high-risk groups, and so what I
would propose is that we really focus on making sure that we
adequately fund the Starting Early, Starting Smart program,
which was a pilot program in the last SAMHSA reauthorization,
and it focuses on at-risk families. Because you can't reach the
kids until you reach the parents, and this is really a program
that reaches the parents who are at highest risk, and that's
the best way to reach the kids, is to reach the mother and
father who are at highest risk.
And, with that, Mr. Chairman, I appreciate the time.
[The prepared statement of Representative Kennedy follows:]
Prepared Statement of Representative Kennedy
Senator Reed and Senator Enzi, thank you for inviting me to
testify today. Senator Reed, I'd like to particularly commend
you on your leadership in this hearing. While I'm very fond of
the committee chairman, I'm also proud to have a fellow Rhode
Islander holding the gavel today, and exhibiting a strong voice
for improving mental health and substance abuse care every day.
When you get right down to it, we do a terrible job
delivering mental health and substance abuse care in this
country. This is not a knock on the providers, who are for the
most part paid a pittance and are truly doing the Lord's work
with little thanks. It's also not a knock on SAMHSA. The people
there are dedicated and swimming hard upstream in a culture and
government that undervalues mental health and substance abuse
treatment, trying to improve care and create change.
The fact is, however, most people in need of treatment
don't get it. Those who do often don't get the benefit of the
latest science. Care for mental illnesses and substance abuse
is segregated, often nearly entirely divorced from the rest of
health care and even from each other.
Every few years, it seems, there's another blue ribbon
report on the challenges we face on mental health and substance
abuse. The Surgeon General's report in 1999. The New Freedom
Commission report in 2003. The Institute of Medicine report in
2005. The focuses of these reports differ, but the underlying
message of all are consistent: in the words of the New Freedom
Commission, ``the mental health services system does not
adequately serve millions of people who need care.'' \1\
---------------------------------------------------------------------------
\1\ President's New Freedom Commission on Mental Health, Interim
Report to the President (2002), p. 1.
---------------------------------------------------------------------------
Congress's goal for reauthorizing SAMHSA should be to
ensure that the agency can be a force for transforming our
fragmented and broken mental health and substance abuse
treatment systems. We need to be thinking systemically, and
asking what levers we can pull that will change the underlying
dynamics of the mental health and substance abuse systems.
With that perspective in mind, I would suggest three
overarching themes for our focus: (1) driving the development
and use of the evidence base; (2) dramatically improving the
coordination of mental health, substance abuse, and primary
care; and (3) expanding our investment in prevention.
DEVELOPING AND USING THE EVIDENCE BASE
There are several interrelated problems when it comes to
the evidence base. At a systems level, we remain set up to
deliver care that is more expensive, inpatient-oriented, and in
response to crises rather than a community- and family-based,
recovery-oriented model of service delivery. We know that
doesn't produce the best outcomes and certainly is not a good
use of scarce resources, yet we inhibit the evidence-based
approach to care delivery.
Another problem is that far too often providers don't use
the science we have. The IOM's report on Improving the Quality
of Health Care for Mental Health and Substance-Use Disorders, a
number of studies have documented the failure of clinicians to
adhere to evidence-based care guidelines for a wide range of
disorders. Overall, in only 27 percent of studies were adequate
adherence rates found.\2\
---------------------------------------------------------------------------
\2\ Institute of Medicine, Improving the Quality of Health Care for
Mental Health and Substance-Use Disorders (2005), p. 133.
---------------------------------------------------------------------------
A third problem is that the research is often not directly
relevant to real-world practice. Participants in trials are
often screened out to ensure they don't have co-occurring
disorders or other complicating factors, and most trials take
place in academic medical centers, not at the community based
treatment centers where so much care actually occurs. As in the
rest of health care, we invest very little in comparative
outcomes research and services research, to discover which
interventions are more cost-effective, and how to most
effectively and safely deliver care.
While the solutions to these problems go beyond SAMHSA,
there are some important steps we can take to build the
development and use of the evidence base into our mental health
and substance abuse treatment systems.
First, we need to support SAMHSA's efforts in recent years
to help States transform antiquated systems. For years we have
known that community-based systems of care produce better
outcomes at a fraction of the cost of institution-based
systems. In Rhode Island in 2000, a year in residential
treatment for an adolescent cost $242,000, a year in the
Training School cost $94,000, and a year of intensive,
community-based services cost $14,000.\3\ SAMHSA made a few
rounds of transformation grants to help States move to a more
modern approach, but has been unable to implement those fully
as the budget has been squeezed. The problem in many States is
that the transition cannot happen all at once. Creating new
treatment options carries a cost, but does not allow the State
to immediately stop paying for beds it is carrying. We need to
figure out ways for SAMHSA to support the transition, while
ensuring that the funds carry accountability for changes to
evidence-based systems of care.
---------------------------------------------------------------------------
\3\ Rhode Island Public Expenditure Council, A Review of the
Department of Children, Youth and Families (2001), p. 32.
---------------------------------------------------------------------------
On a related note, we should expect more of States that
have received Children's System of Care grants. These grants
have produced islands of excellence in local communities, but
are too often not sustained and not brought to scale. The
program has been highly successful, but should be tweaked to
ensure greater involvement and buy-in from the State and
incentives to replicate local successes in other communities
and statewide.
Next, I propose the creation of a permanent Commission for
Evidence-Based Mental Health and Substance-Use Health Care.
This expert panel would be responsible for strengthening,
consolidating, and coordinating the synthesis and dissemination
of evidence-based best practices.
This non-political commission would build on work being
done at SAMHSA, as well as at AHRQ and NIH. The Commission
would be able to provide a ``good housekeeping seal of
approval'' to prevention, screening, diagnosis, and treatment
practices supported by science and to create a research agenda
by identifying areas where strong evidence is lacking.
By benchmarking evidence-based practices, the Commission
could provide guidance to the field to focus training and
professional development. It would also allow for the
development of performance measures that can, over time, enable
pay-for-performance and other value-based purchasing strategies
that are the most important means of improving care. Because
the research base is thin in many areas, we need to be very
careful not to go too far too quickly in linking payment to the
use of evidence-based practices--we do not want to shut down
access to effective interventions that may not have been
adequately researched yet. But ultimately, payment drives
practice patterns, and if we want to better use the evidence
base and get better outcomes and a more efficient use of
resources, we need to adjust how we pay for care.
A complement to payment-based strategies for improving the
quality of care is better direction by the professions
themselves. This field is marked by a large number of different
professions, with a wide range in terms of training,
credentialing, and licensure. There is little consistency or
quality control across mental health and substance abuse
treatment.
We should heed the Institute of Medicine's recommendation
to create a Council on the Mental Health and Substance-Use
Workforce, to parallel councils for physicians and nurses. This
new council would provide guidance to graduate schools and
State licensing bodies to ensure that professionals working in
the field have appropriate expertise grounded in the latest
science and that consumers have meaningful information about
providers when seeking out care. This group could also provide
an ongoing assessment and data to back up the widespread
anecdotal reports of critical workforce shortages in the field.
Finally--and this may be a bit further afield for a SAMHSA
reauthorization bill--I believe we need to create a national
network of mental health and substance abuse centers of
excellence, akin to the national centers of excellence in
cancer. We need to tie our cutting edge, institution-based
research to community-based practice settings, and make a
national commitment to finding new cures and treatments. While
there's been an explosion in understanding of these diseases
due to brain scanning technology and genomics, we are still
essentially using variations on the same treatments we had 30
years ago. I would like to see a major initiative that can
dramatically expand the evidence base, building on and tying
together the work that is happening at leading institutions
like Brown, the University of Michigan, UCLA, and UC-Davis. I
have spoken to leading researchers around the country and
believe that the time is right for a national network that
could be greater than the sum of its parts.
DRAMATICALLY IMPROVING THE COORDINATION OF CARE
Just last week USA Today ran a front page story on a new
report that shows that individuals in the public mental health
system die, on average, 25 years earlier than the general
population.\4\ This shocking outcome is not based on suicide,
mind you, but on poorly managed general health and other
chronic diseases like diabetes and heart disease.
---------------------------------------------------------------------------
\4\ Marilyn Elias, ``Mentally Ill Die 25 Years Earlier, on
Average.'' USA Today (May 3, 2007).
---------------------------------------------------------------------------
Part of the explanation may lie in the comorbidity of
mental illnesses and smoking or the side-effects of medications
commonly taken by people with mental illnesses. Undoubtedly,
however, a major contributor is the poor coordination between
primary health care and mental health and substance abuse care.
The problem is severe even within behavioral health, as mental
health and substance abuse care are often siloed, even though
the patients are so often the same people.
The Federal Government bears a chunk of the responsibility,
and one thing we should seek to do with this reauthorization is
to take down some of the barriers that we erect between primary
care, mental health care, and substance abuse care.
I am well aware of the historical factors at play in this
space, and that even talking about better integrating mental
health and substance abuse treatment makes some people's hair
stand up on end. But I am also aware that research
unambiguously shows that individuals' outcomes are better when
care is coordinated and, ideally, integrated. And I believe
that there are steps we can take that would help without
upending our current patterns.
For example, it is currently very difficult to use either
mental health or substance abuse treatment block grant funds to
pay for truly integrated care for co-occurring disorders.
That's because the block grants carry strict requirements on
paying only for mental health or substance abuse respectively,
so documentation problems arise when the care is integrated.
Without opening the door to merging the block grants, it should
be possible to enable providers--or even better, to encourage
them--to deliver the most effective, integrated care to
individuals with co-occurring disorders.
Similarly, I would like to see ways of encouraging our
community behavioral health centers and community health
centers to collaborate. We spend enormous sums on two parallel
systems of community health providers. But because one is
funded out of HRSA and the other out of SAMHSA, their
collaboration is haphazard at best. Imagine if instead centers
were co-located. Or even that whenever a person contacted a
community behavioral health center for an appointment, they
were also given an appointment at the community health center
to check their other chronic diseases. We should build
incentives into these funding streams to bring about
partnerships that will bring people's care together.
Of course, these kinds of disconnects exist throughout
various government programs. The Federal Government should get
its own house in order, and begin collaborating around mental
health and substance abuse, so it can ensure that collaboration
occurs where services actually meet consumers.
One such success story is the Safe Schools Healthy Students
program (SSHS). In 2001, then-Surgeon General David Satcher
came to Rhode Island for a forum I put together on children's
mental health. Surgeon General Satcher singled out SSHS as the
most successful program he had seen in mental health. Now
remember, this is just a year after his groundbreaking mental
health report. What distinguished SSHS, he said, was that it
was a genuine partnership between SAMHSA, the Department of
Justice, and the Department of Education, and their
counterparts at the local level. Because the three Federal
departments developed and funded the program together (at least
in the early years), it was able to require and get real buy-in
from the police departments, schools, and mental health
agencies and was therefore extremely effective.
SSHS should be a model for us. We should create an ongoing
behavioral health working group among various HHS agencies, VA,
DOD, DOJ, Education, and perhaps even HUD and Labor. The
mandate of this group should be to ensure that programs for
mental health and substance abuse treatment do not conflict
with each other and to foster collaboration in the delivery of
services. We should ensure that the agencies have authority to
pool their funds for interagency grants like SSHS was
initially. Until our own Federal Government gets its house in
order, we cannot realistically expect our systems to regularly
deliver the kind of coordinated care consumers need and
deserve.
EXPANDING OUR INVESTMENT IN PREVENTION
With so much unmet need for treatment, it is difficult to
carve out funding for prevention. Still, we all appreciate how
frustrating, absurd, and inefficient it is to be waiting for
people to crash when we have some ideas about how to keep them
healthy in the first place.
I would begin with a much more robust investment in the
most vulnerable children from birth to six. The fact is, we
know which children are most likely to be abusing drugs and
alcohol or wind up with mental health problems when they are
older. We know them by behaviors--just ask any kindergarten
teacher which students are heading for trouble--and we know
them by environmental factors. The research clearly shows that
kids living in homes with maternal depression, substance abuse,
and family violence are much, much more prone to developing
problems of their own. There are actual, physical changes to
their brains that occur as a result of the toxic stress levels
that they are subjected to.
We also know how to have the greatest impact on those
children and set them on more healthy trajectory: work with the
family. There's some fascinating research out of the NYU Child
Study Center's Parent Corps program. They worked with the
parents only, no intervention with the children. After
intensive lessons and guidance in parenting and such things as
discipline, dealing with crying babies, and the like, the
program produced measurable changes in the children's brains--
physiological changes in the children as a result of working
solely with the parents. And we know from studies like the
Perry Preschool Study that intervening early can change
outcomes for life. For example, at age 40, participants in that
study were 50 percent more likely than their counterparts to be
earning $20,000 per year, 44 percent more likely to have
graduated high school, and 53 percent less likely to have been
arrested five or more times. The investment in these young
children's lives has thereby paid off annualized internal rate
of return of 18 percent in additional tax revenues and
expenditures saved.\5\
---------------------------------------------------------------------------
\5\ Lawrence J. Schweinhart, Ph.D., The High/Scope Perry Preschool
Study Through Age 40: Summary, Conclusions, and Frequently Asked
Questions (2005).
---------------------------------------------------------------------------
The Starting Early Starting Smart program, an innovative
joint venture of the Casey Foundation and the Center for
Substance Abuse Prevention at SAMHSA, was a family- and
caregiver-focused approach to working with vulnerable children,
using child care providers and pediatricians as the entry
point. Unfortunately, it was conducted as a research demo, and
allowed to peter out. We should resurrect that approach.
SAMHSA's commitment to prevention should include a significant
investment in young children with multiple risk factors and in
their families.
We also should bring a stronger prevention ethos to school-
based behavioral health. Approaches based on positive
behavioral supports that help improve all students, provide
early identification for students in need of formal
assessments, and services along a continuum can prevent
students from falling through cracks and reaching crises before
their needs are recognized or met. In partnership with the
Department of Education, SAMHSA should work to broaden the role
of school-based mental health personnel as well as expand
collaborative programs such as SSHS.
CONCLUSION
There is no shortage of priorities in the mental health and
substance abuse fields. In addition to the issues discussed
above, there are plenty of other things that should happen in a
reauthorization of SAMHSA: fostering the use of information
technology and ensuring that the mental health and substance
abuse field is integrated into the larger health IT systems
being developed; reauthorizing the Garrett Lee Smith Act;
codifying a program to focus on the mental health and substance
abuse treatment needs of seniors; authorizing the Keeping
Families Together Act; and developing performance measures at
both the systems and provider levels are just some of the
priorities that should be included.
That said, we also must acknowledge the two major
limitations on this bill: first that Medicaid, much more than
SAMHSA, is driving the direction of the mental health system
today (and currently, in the wrong direction, away from a
recovery model), and secondly, that SAMHSA is and will continue
to be for the foreseeable future woefully underfunded.
Given those two realities, I believe we really must think
strategically about how we use SAMHSA's resources. While there
are many terrific grant programs, a number of which I strongly
advocate for in the Appropriations Committee every year, the
fact is that with its limitations, SAMHSA is much better off
leveraging systems change than funding services. As we move
forward, I would urge the committee to think carefully about
how a reauthorized SAMHSA can put in place infrastructure,
systems, and incentives that will drive long-term, lasting
change in the way care is delivered.
Thank you for the privilege of testifying today. I look
forward to working with you to bring more accessible, higher
quality, and more efficient mental health and substance abuse
care to all Americans. Thank you.
Senator Reed. Thank you very much, Congressman, for your
insightful testimony. And your framework of evidence-based
legislation, coordination of primary care and prevention is a
good place for us to begin, and I thank you. I know you'll be
working hard in the other body, where we both served, to ensure
that this authorization proceeds forward.
We've been joined by Senators Burr, Murkowski and Senator
Murray, and I would--if they had questions or comments, I'd
invite them at this time.
Thank you very much, Congressman.
Representative Kennedy. Thank you.
Senator Reed. Now, I'd like to call forward for the second
panel, Dr. Terry Cline, the Administrator of the Substance
Abuse and Mental Health Services Administration.
Dr. Cline was nominated by President George W. Bush, on
November 13, 2006, and confirmed on December 9, 2006, as the
Administrator for the Substance Abuse and Mental Health
Services Administration. As a SAMHSA Administrator, Dr. Cline
leads an agency with a $3.3 billion budget, and is responsible
for improving the accountability, capacity, and effectiveness
of the Nation's substance abuse prevention, addictions
treatment, and mental health service delivery systems.
Prior to his appointment, Dr. Cline served as Oklahoma's
Secretary of Health, a position he was appointed to by Governor
Brad Henry in 2004. At the same time, he served as Oklahoma's
Commissioner of the Department of Mental Health and Substance
Abuse Services, a position he held since January 2001.
Dr. Cline also has extensive clinical experience, he was a
Clinical Director of the Cambridge Youth Guidance Center in
Cambridge, Massachusetts, and a staff psychologist at McLean
Hospital in Belmont, Massachusetts.
His professional history also includes a 6-year appointment
as a clinical instructor in the Department of Psychiatry at
Harvard Medical School, and Chairman of the Governing Board for
Harvard Teaching Hospital in Cambridge, Massachusetts. A native
of Ardmore, Oklahoma, Dr. Cline attended the University of
Oklahoma where he earned a Bachelor Degree in psychology in
1980, and then received both a Master's degree and a Doctorate
in Clinical Psychology from the Oklahoma State University.
Dr. Cline has involved himself in community service at the
local, State and National levels, it is a pleasure to welcome
him here today. Dr. Cline, thank you.
STATEMENT OF TERRY CLINE, PH.D, ADMINISTRATOR, SUBSTANCE ABUSE
AND MENTAL HEALTH SERVICES ADMINISTRATION, U.S. DEPARTMENT OF
HEALTH AND HUMAN SERVICES, ROCKVILLE, MARYLAND
Mr. Cline. Thank you very much, Mr. Chairman, members of
the committee. I appreciate the opportunity to present to you
today, and to talk about SAMHSA's vision and mission.
I came to SAMHSA in my position in January with a very
clear understanding of the importance of SAMHSA's vision and
mission. As an undergraduate, I had worked my way through
college by working on an inpatient children's unit, where we
served young kids, as young as 5 years old.
I returned as a student several years later, to that very
same hospital, and saw some of the same children still living
in that institution. Some of those children hundreds of miles
away from their families.
As a clinician in Cambridge, I provided home-based family
therapy to low-income housing developments, and every time I
went to visit one family, I would walk by dozens of other
families that were in need of services, but were not able to
receive those services, because I was only serving one family
at a time. So that need was very, very great.
And then as Commissioner in Oklahoma, and as the Secretary
of Health, I was able to see that ripple effect across our
entire State system, to see the repercussions, what happens
when we are not able to meet the needs of people who are
struggling with mental illness, and who are struggling with
their addictions, across both the private and the public
sectors of the entire State system, very dramatic.
Recently, we saw the results of a report from the Agency
for Health Care Research and Quality, which highlighted the
finding that a quarter of all hospital stays in the country--
about 7.6 million of the overall 32 million hospital stays--
involve people with the diagnosis of mental illness or
substance abuse. This tells us that that ripple is effecting
people being seen in general hospital settings, rather than
being seen in more specialty services.
We also know when we don't provide those services, that
there is a human cost, as well as that economic cost--sometimes
there are lost jobs, sometimes lost families, sometimes lost
lives. There are approximately 30,000 individuals who commit
suicide every single year in the United States of America. I
come from a small town of about 25,000 people, in Oklahoma, so
I try to imagine the entire population of that town being
lost--not just 1 year, but year after year after year--30,000
people every year, lost to suicide.
So, even in the midst of all of these struggles and all of
these challenges, there is good news. And the good news is that
people can, and people do recover from mental illness, people
can and do recover from substance abuse and addiction. There
are evidence-based practices for treatment, and there are
effective strategies for prevention.
And, as an example in prevention, we know that in 2006,
approximately 840,000 youth--fewer youth--are using drugs in
2006 than were using in 2001. So, we're able to reach those
young populations and to prevent them from using drugs.
As we address these challenges and move toward a vision,
SAMHSA has embarked on a strategic plan that includes
accountability, capacity, and effectiveness of services,
really, the three legs of a stool in our strategic plan.
In our partnership with stakeholders across the country, we
have developed national outcomes measures which reflect real-
life meaningful outcomes for people who are striving to attain,
and sustain, recovery in their lives. These are individuals who
are holding jobs, these are individuals who are living with
their families, these are individuals that are able to
participate fully in their communities of choice, and again
this is done in partnership with stakeholders across the
country.
We also know, and we heard this reflected earlier in the
testimony from Representative Kennedy, that to better serve
these particular populations, we know that we need to
completely transform our behavioral health systems. The
President's new Freedom Commission on Mental Health found that
we have an incredibly fragmented, fractured system, which is
not effectively serving people in need in our country.
I believe a public health approach which provides
comprehensive services, and an entire range of services,
including prevention, early intervention, acute treatment and
recovery support services, is the approach that will best serve
the people of our country. We've seen this work for other
illness categories, and we know it will work here, as well.
I believe that as we strive to address the needs of people
with mental illness, and people who are struggling with
addictions and chemical dependency, that we will be a much
stronger country, and a healthier Nation.
I look forward to working with you as the year progresses,
and I again, appreciate this opportunity to present to you
today. And, I'd be happy to answer any questions you may have.
[The prepared statement of Dr. Cline follows:]
Prepared Statement of Terry L. Cline, Ph.D.
Mr. Chairman and members of the committee, I am honored to present
to you the vision, mission, and priorities of the Substance Abuse and
Mental Health Services Administration (SAMHSA), an agency of the
Department of Health and Human Services (HHS).
SAMHSA has established a clear vision for its work--a life in the
community for everyone. To realize this vision, the Agency has sharply
focused its mission on building resilience and facilitating recovery
for people with or at risk for mental or substance use disorders. To
achieve its vision and mission, SAMHSA directs a rich portfolio of
grant programs and contracts that support State and community efforts
to increase accountability, build capacity, and improve the
effectiveness of substance abuse and mental health service delivery
systems.
The need for SAMHSA's strategic focus on strengthening service
delivery systems is undeniable. There are economic costs of undiagnosed
and untreated mental and substance use disorders. There are also human
costs--measured in lost jobs, lost families and lost lives--that are
incalculable and affect the well-being of millions of Americans.
SAMHSA, through its offices and centers--the Center for Substance Abuse
Prevention (CSAP), the Center for Substance Abuse Treatment (CSAT), and
the Center for Mental Health Services (CMHS)--is working with State and
local governments, tribal organizations, consumers, families, service
providers, professional organizations, and the Administration to focus
National attention and resources on prevention, treatment and recovery
support services.
Without prevention, treatment and recovery support services, data
confirm the enormous role that substance use and mental health
disorders play in increasing our Nation's health care costs. For
example, according to a new report by HHS' Agency for Healthcare
Research and Quality, almost one-fourth of all stays in U.S.-community
hospitals for patients age 18 and older in 2004--7.6 million of nearly
32 million stays--involved depressive, bipolar, schizophrenia and other
mental health disorders or substance use related disorders. This study
presents the first documentation of the full impact of mental and
substance use disorders on U.S.-community hospitals.
The significant number of hospital stays related to mental and
substance use disorders signals the need to identify and intervene
early before the conditions require a hospital stay. Too often because
of social stigma or lack of understanding, individuals and health care
providers do not recognize the signs or treat mental or substance use
disorders with the same urgency as other medical conditions. For
example, the full spectrum of substance use disorders can be identified
by screening tools which can result in an intervention. The
Administration is working to meet this need through the Screening,
Brief Intervention, Referral and Treatment (SBIRT) program funded by
SAMHSA. This program uses cooperative agreements to expand and enhance
a State or tribal organization's continuum of prevention, intervention,
and treatment by adding screening, brief intervention, referral, and
treatment services within general medical settings.
Also to be considered is the component of mental and substance use
disorders that patients themselves often do not recognize or
understand. For example, in 2005 the number of persons 12 and older who
needed treatment for an alcohol or drug use problem was 23.2 million,
according to SAMHSA's National Survey on Drug Use and Health. Of these,
2.3 million received treatment at a specialty facility. Specialty
treatment is defined as treatment received at any of the following
types of facilities: hospitals (inpatient only), drug or alcohol
rehabilitation facilities (inpatient or outpatient), or mental health
centers. The survey also points to a huge denial gap. Among individuals
with drug or alcohol dependence or abuse who have not received
treatment, more than 94 percent do not feel they need treatment.
Unlike an obvious broken bone, burn, laceration, or other physical
wound, addiction and mental illnesses often do not have outward
physical signs. Adding another layer to the complexity of seeking
timely and appropriate treatment is the barrier of not knowing when or
where to seek help and the lack of awareness that mental and substance
use disorders often co-occur. Beyond these barriers, the issues of
stigma, access, and availability of services also present roadblocks to
early intervention, treatment, and recovery.
Yet SAMHSA--knowing the barriers, accepting the challenges, and
fully understanding the importance of our role in the pubic health
approach to creating a healthier America--continues to move forward
working to improve and save lives that otherwise might be lost to
devastating symptoms, isolation and even suicide. SAMHSA moves forward
with the understanding that recovery is the expected outcome, by
identifying areas of greatest need through data collection, filling
those needs through evidence-based service delivery, and then measuring
effectiveness and managing agency resources through an informed data
strategy and recovery-based outcome measures.
RECOVERY IS THE EXPECTED OUTCOME WITH THE PUBLIC HEALTH APPROACH
With appropriate help, individuals with mental illnesses, substance
use disorders, and co-occurring disorders can and do recover. These
conditions are chronic illnesses; relapses are possible; and the
recovery process can be protracted. However, when these individuals
take that brave step toward seeking help, and the right services and
treatment take hold, the potential for recovery can unfold. Today,
recovery is no longer the exception; it is the expectation. To advance
the recovery paradigm the public health approach is required, working
with people in the context of their environments. The public health
model uses systems that provide a continuum of services that focus on
an entire population rather than on individuals with individual
illnesses. The continuum begins with an assessment of need and ends
with a population-based, evaluated approach that extends into practice,
research, policy, and the engagement of the public itself.
DATA COLLECTION TO DEFINE NEEDS
SAMHSA reports to the Nation on the prevalence of substance use and
mental health problems in the United States. One of those measures is
provided by our National Survey on Drug Use and Health. The survey
provides national and comparable State-level estimates of substance
use, abuse, and dependence. It also provides an ongoing source of
nationally representative and State-level information on mental health.
The analysis of trends over time from the survey, alone and in
combination with other data sources, provides an invaluable tool to
measure outcomes of the National Drug Control Strategy and to report
our progress to Congress. Two other major national surveys conducted by
SAMHSA include the Drug Abuse Warning Network (DAWN) and the Drug and
Alcohol Services Information System (DASIS). The DAWN obtains
information on drug-related admissions to emergency departments and
drug-related deaths identified by medical examiners. DASIS consists of
three data sets developed with State governments. These data collection
efforts provide national and State information on the substance abuse
treatment system.
EXPANDING SUBSTANCE ABUSE TREATMENT CAPACITY
The cornerstone of the Nation's substance abuse prevention and
treatment activities is the Substance Abuse Prevention and Treatment
Block Grant funded by SAMHSA which is designed to support and expand
substance abuse prevention and treatment services, while providing
maximum flexibility to States. It provides support to 60 eligible
States, territories, the District of Columbia and the Red Lake Indian
Tribe. SAMHSA's CSAT also funds an array of discretionary grants
through the Programs of Regional and National Significance to build
treatment capacity, including innovative financing (e.g., Access to
Recovery Program) and increased use of screening, brief interventions,
referral and treatment services.
SAMHSA has partnered with health care professionals to expand use
of screening and brief interventions to identify the full spectrum of
substance users as a routine part of standard health care and provide
brief, cost-effective interventions to help them cease substance use
once discovered. The modality, called Screening, Brief Intervention,
Referral and Treatment (SBIRT), has been deployed to hospitals, health
clinics, college campuses and school-based clinics across the country.
Under SBIRT, medical professionals conduct brief screening in a general
health care setting such as a hospital, a health clinic or a
university-based clinic. Under SBIRT, once a problem is detected, a
medical professional immediately performs a brief intervention, lasting
less than 30 minutes. Brief interventions assist patients in
recognizing the impact of unhealthy drinking or drug use and commit
them to a plan of action to cease use. Studies show that this brief
intervention can reduce substance abuse significantly, thus improving
overall health. These interventions are very cost-effective as they
reduce re-admission into emergency departments and re-hospitalizations.
In many cases, the brief intervention is sufficient for the non-
addicted user. Those with scores that fall into the range of dependence
are referred to more intensive treatment.
To date the Federal SBIRT program has screened 504,334 people in
healthcare settings in 10 States in the Nation. A positive screen was
obtained in 21.2 percent of people screened, and these were
subsequently provided with brief intervention (15.1 percent), brief
treatment (2.7 percent), or were referred to treatment (3.3 percent).
Six-month follow ups on a sampling of those receiving an intervention
show promising reductions in substance use, depression and improvements
in other parameters.
For those referred to treatment because they have become addicted,
SAMHSA has expanded options for treatment. The Access to Recovery (ATR)
program, a Presidential initiative, is a key source of innovation in
the field of addiction recovery. Through the use of vouchers, ATR
provides clients with the opportunity to choose among a broad array of
substance abuse clinical treatment and recovery support service
providers. ATR is designed to: (1) allow recovery to be pursued through
personal choice and many pathways; (2) require grantees to manage
performance-based outcomes that demonstrate client successes, (3)
expand capacity by increasing the number and types of providers who
deliver clinical treatment and/or recovery support services. The
outcomes for clients served through the ATR program are very
encouraging. As of December 31, 2006, the ATR program had served
137,579 clients, exceeding the initial target by 10 percent. After
receiving services through ATR, 81 percent of clients are abstinent
from substances and 51 percent are in stable housing.
Expanding substance abuse treatment capacity also has a direct link
to shrinking rates of criminal recidivism. Upon discharge from the ATR
program, 97 percent of clients have no involvement with the criminal
justice system. This impressive rate reflects an 81 percent reduction
among those who were involved with the criminal justice system at
intake. Additionally, drug treatment courts provide a successful
alternative to incarceration and help to break the cycle of addiction,
crime, incarceration, release, relapse, and recidivism. These courts
enable stakeholders to work together to give individual clients the
opportunity to improve their lives, including recovering from substance
use disorders and developing the capacity and skills to become full-
functioning parents, employees, and citizens. Close supervision, drug
testing, and the use of sanctions and incentives help to ensure that
offenders stick with their treatment plans while public safety needs
are met.
Other CSAT Programs of Regional and National Significance (PRNS)
include: Targeted Capacity Expansion Grants (TCE-General) which have
focused on treatment for methamphetamine use, minority populations, and
rural areas, to name a few; Grants to Benefit Homeless Individuals; and
the Minority HIV/AIDS and Substance Abuse Treatment Grant program.
SAMHSA has focused its grant resources on activities that directly
demonstrate improvements in substance abuse outcomes and increase
capacity while eliminating less effective or redundant activities
within the Substance Abuse Prevention and Treatment PRNS.
STRENGTHENING AND STREAMLINING SUBSTANCE ABUSE PREVENTION EFFORTS
While expanding substance abuse treatment capacity and recovery
support services is critical, it is imperative not to lose sight of the
importance of preventing addiction in the first place by stopping
substance use before it starts. SAMHSA will continue the Strategic
Prevention Framework grant program to accomplish the President's goal
to reduce youth drug use in America, thereby leading to a healthier
populace. By focusing our attention, energy and resources we, as a
nation, have made real progress toward reaching the President's goal.
The most recent data from the 2006 Monitoring the Future Survey
confirms that we have reduced youth drug use by 23 percent by 2006.
What this means is approximately 840,000 fewer youth used illicit drugs
in 2006 than in 2001. Although our work is far from over, prevention
remains key and SAMHSA's Strategic Prevention Framework (SPF) will
continue to play an important role in achieving the goals of the
President's Healthier US Initiative.
To more effectively and efficiently align and focus our prevention
resources, SAMHSA launched the SPF State Incentive Grant Program in
fiscal year 2004. It is systematically implementing a risk and
protective factor approach to prevention across the Nation. The success
of the framework will continue to be determined by, in large part, on
the tremendous work that comes from the Office of National Drug Control
Policy's (ONDCP) grass-roots community anti-drug coalitions. Along
those lines, SAMHSA expects to continue working with ONDCP to support
the over 750 grantees funded through the Drug-Free Communities grant
program. Moreover, with SAMHSA's State Epidemiological Workgroups, we
will target funding to areas of greatest need for various prevention
interventions and services. Funding to States, communities and tribal
organizations will be data driven.
Additionally, SAMHSA will continue to focus energy and take a
leadership role in the prevention of underage drinking. According to
the Surgeon General's Call to Action to Prevent and Reduce Underage
Drinking, alcohol is used by more young people than tobacco or illicit
drugs. An estimated 10.8 million young people between the ages of 12
and 20 (28.2 percent of this age group) are current drinkers. Nearly
7.2 million (18.8 percent) are binge drinkers, and 2.3 million (6.0
percent) are heavy drinkers. Each day, more than 10,000 young people
under the age of 21 take their first drink. We know that we need to
change how America thinks about underage drinking if we are to see a
significant reduction in the problem. SAMHSA and HHS' National
Institute on Alcohol Abuse and Alcoholism (NIAAA) collaborated with the
Office of the Surgeon General to produce the Call to Action, which was
released on March 6, 2007. The Call to Action provides a public health
approach to stimulate action in all sectors of society to prevent and
reduce underage drinking.
SAMHSA's Center for Substance Abuse Prevention supports a range of
activities that address the substance abuse prevention needs of
community-based populations. For example, CSAP supports over 148 grants
that work to expand the capacity of community-level domestic public and
private non-profit entities to prevent and reduce the onset of
substance abuse and transmission of HIV and hepatitis among minority
populations and minority re-entry populations. In addition, CSAP
supports a $9.8 million Fetal Alcohol Spectrum Disorders Center for
Excellence that identifies best practices and builds on evidence-based
prevention for pregnant and postpartum women, assistance for those with
developmental disabilities, and support for other populations invested
in serving those with, or affected by Fetal Alcohol Spectrum Disorders
(FASD). Through subcontracts, the FASD program will implement system-
wide prevention approaches through States, tribes, communities and
territories that have high FASD incidence and prevalence rates. CSAP
also has initiatives targeting Native American Populations and oversees
the Federal Drug Free Workplace Program.
IMPLEMENTING THE FEDERAL MENTAL HEALTH ACTION AGENDA
Today, there is unprecedented knowledge enabling people with mental
illnesses to live, work, learn, and participate fully in their
community. The President's New Freedom Commission on Mental Health
found in its 2003 report that the time has come for a fundamental
transformation of the Nation's approach to mental health care. It
reported that the current system is unintentionally focused on managing
the disabilities associated with mental illness rather than promoting
recovery, and that this limited approach is due to fragmentation, gaps
in care, and uneven quality. These systemic problems frustrate the work
of many dedicated staff, and make it much harder for people with mental
illness and their families to access needed care.
SAMHSA's Center for Mental Health Services (CMHS) is leading the
Federal effort to achieve the vision of a transformed mental health
system. Among the tasks are: helping Americans understand that mental
health is essential to overall health; reorienting the system toward a
consumer-and-family driven system; eliminating disparities; providing
appropriate mental heath assessment and referral; delivering excellent
mental health care and accelerating research; and utilizing technology
to access mental health care and information through electronic health
records.
Instead of focusing on a few grants that promote transformation,
SAMHSA has worked to ensure that the principles of mental health
transformation are present throughout all SAMHSA grant activities
including the Community Mental Health Services Block Grant, which
continues to support comprehensive, community-based systems of care for
adults with serious mental illness and children with serious emotional
disturbance. Within the CMHS Programs of Regional and National
Significance (PRNS), the Mental Health Transformation State Incentive
Grants are supporting States in developing a comprehensive mental
health plan and improving their mental health services infrastructures.
States receiving awards expand the use of evidence-based practices, use
technology to improve access to care, and engage consumers in shaping
the system to meet their needs.
A transformed mental health delivery system will have a direct
impact on SAMHSA's ability to improve services around suicide
prevention, school violence prevention, children's mental health, the
transition from homelessness to stable housing, and protecting the
rights of individuals with mental illnesses.
Starting with suicide prevention, suicide is a preventable tragedy
and is a high-priority status within the agency. The reason for the
priority is clear: in the past year, approximately 900,000 youth aged
12-17 during their worst or most recent episode of major depression
made a plan to commit suicide, and 712,000 attempted suicide. Currently
SAMHSA funds a total of $36 million for suicide prevention, including
activities authorized by the Garrett Lee Smith Memorial Act, suicide
prevention for the American Indian and Alaska Native youth populations,
a Suicide Prevention Resource Center, and a 24-hour national hotline.
The hotline is available to all those in suicidal crisis who are
seeking help. Individuals seeking help through the hotline are routed
to 1 of over 120 crisis centers across the country which creates a
nationwide lifeline. Approximately 36,000 calls per month are answered
by the hotline and responded to by trained counselors.
In regard to preventing school violence, SAMHSA collaborates with
the Departments of Education and Justice through the Safe Schools/
Healthy Students (SS/HS) program to support local partnerships that
promote healthy childhood development and prevent substance abuse and
violence. There is tremendous opportunity in the area of early
identification of mental health problems as part of a comprehensive
approach to prevention. For example, youths aged 12 to 17 who
experienced depression in the past year were twice as likely to take
their first drink or use drugs for the first time as those who did not
experience depression. Among youths who had not used alcohol before,
29.2 percent of those who experienced depression took their first drink
in the past year, compared with 14.5 percent of youths who took their
first drink but did not have a major depressive episode. And 16.1
percent of youths who experienced depression and had not previously
used illicit drugs began drug use; in contrast, 6.9 percent of youths
who did not have a major depressive episode began drug use.
It is clear young people with serious emotional disturbances who
receive help for their condition are far more likely to experience
success in school and far less likely to enter the juvenile justice
system or the institutional care system. The Agency's Children's Mental
Health Services grant program develops comprehensive, community-based
systems of care for children and adolescents with serious emotional
disorders and their families. Of children receiving services under this
program last year, nearly 70 percent did not require interaction with
law enforcement and nearly 90 percent attended school regularly.
In addition to its system transformation activities, the CMHS PRNS
also includes funding for National Child Traumatic Stress Initiative
and the Minority HIV/AIDS and Mental Health Programs. Homelessness also
continues to be a priority program area for SAMHSA. Approximately one-
fifth of homeless individuals also have serious mental illnesses.
Individuals with serious mental illnesses are homeless more often and
have greater difficulty transitioning from homelessness to stable
housing than other people. The Agency continues support for an array of
individualized services to this vulnerable population through Projects
for Assistance in Transition from Homelessness (PATH) and through
SAMHSA's Mental Health and Substance Abuse Programs of Regional and
National Significance.
Additionally, individuals with mental illnesses and serious
emotional disturbances who reside in treatment facilities are
particularly vulnerable to neglect and abuse. In response, SAMHSA
provides support for State protection and advocacy systems to protect
these individuals from abuse, neglect, and civil rights violations.
Approximately 80 percent of substantiated allegations of abuse and
neglect that are reported to protection and advocacy systems result in
positive change for the client.
MEETING NEEDS THROUGH EVIDENCE-BASED SERVICE DELIVERY
The success of SAMHSA's programs and service delivery systems
clearly hinges on collaboration. No single agency can do it all.
Without exception, partnerships among private sector and Federal, State
and local public sector agencies are key to helping provide people with
mental and substance use disorders the opportunity to achieve a
fulfilling life in the community.
One of our public partners is the National Institutes of Health
(NIH). In brief, the NIH Institutes and Centers, including the National
Institute on Drug Abuse, the National Institute on Alcohol Abuse and
Alcoholism and the National Institute of Mental Health, develop
evidence-based practices through research, and SAMHSA supports
implementation of evidence-based practices through grants that support
service delivery. This partnership forms the basis of our Federal
efforts to ensure the best science is used in our service delivery
systems. Working both independently and collaboratively, we are
committed to establishing pathways to move research findings into
community-based practice and to reducing the Institute of Medicine
reported 15-20 year lag between the discovery of more efficacious forms
of treatment and their incorporation into routine patient care.
To advance ``Science and Service'' and to ensure the public, and
consumers and providers of mental health and substance abuse services
are aware of the latest information, prevention interventions,
treatments and recovery support services SAMHSA operates in its Health
Information Network. SAMHSA also created and funds the National
Registry of Evidence-based Programs and Practices (NREPP). NREPP is a
web-based decision support system designed to help States and
community-based service providers make informed decisions about
interventions they select to prevent and treat mental and substance use
disorders. The NREPP system is the culmination of a multi-year process
that included input from numerous scientific and health care service
experts and the public. It currently provides information on 27
interventions. Two-thirds of these received NIH funds for development
and testing.
MEASURING EFFECTIVENESS AND MANAGING RESOURCES THROUGH A DATA STRATEGY
AND RECOVERY-BASED OUTCOME MEASURES
Performance measurement and management is a challenging and complex
issue. Our goal at SAMHSA is to achieve a performance environment with
true accountability focused on a limited number of national outcomes
and related national outcome measures. This goal is built on a history
of extensive dialogue with our colleagues in State mental health and
substance abuse service agencies and, most importantly, the people we
serve.
The domains we have identified embody meaningful, real life
outcomes for people who are striving to attain and sustain recovery,
build resilience, work, learn, live, and participate fully in their
communities. In collaboration with the States, we have identified 10
domains as our National Outcome Measures, or NOMs.
The first and foremost domain is abstinence from drug use and
alcohol abuse or decreased symptoms of mental illness with improved
functioning. Four domains focus on resilience and sustaining recovery:
getting and keeping a job or enrolling and staying in school; decreased
involvement with the criminal justice system; securing a safe, decent,
and stable place to live; and social connectedness to and support from
others in the community such as family, friends, co-workers, and
classmates. Two domains look directly at the treatment process itself
in terms of available services and services provided: increased access
to services for both mental and substance use disorders; and increased
retention in services for substance abuse treatment or decreased
inpatient hospitalizations for mental health treatment. The final three
domains examine the quality of services provided: client perception of
care, cost-effectiveness, and use of evidenced-based practices in
treatment.
Data for reporting on these measures come from the States. States
are supported in their efforts by SAMHSA with infrastructure, technical
assistance, and financial support through the new State Outcome
Measurement and Management System (SOMMS) Program, which is funded
through the set-asides for the mental health and substance abuse block
grants.
Among the States reporting data to SAMHSA in the Retention and
Perception of Care domains for mental health, the NOMs data
demonstrates a low percentage (8 percent) of patients returning to
State hospitals 30 days after discharge and a high percentage (71
percent) of consumers of mental health services who reported they were
doing better as a direct result of services received. With regard to
substance abuse, the NOMs data reported to SAMHSA demonstrates
significant success in the abstinence domains for both alcohol and drug
use with over 94 percent of reporting States indicating improvements in
client abstinence. Similar successes were reported in improved client
employment and reduction in arrests. Ultimately, SAMHSA will be able to
report State-level, consistent, cross-year data which will allow us to
examine the impact of programs and changes over time.
We have collected and reported to Congress the data that are
available at this time. The NOMs are also available on the SAMHSA Web
site, www.samhsa.gov. Each outcome measure is detailed in a table, and
State profiles are available as well. The consensus that was needed to
develop and implement the NOMs now needs to become widespread and used
to guide the daily operations of provider organizations and individual
providers to continue to improve service delivery systems.
CONCLUSION
As the Administrator of SAMHSA, I am steadfast in my commitment to
lead SAMHSA and the people we serve toward achieving the best outcomes
possible. Each of us lives and works in a time when behavioral health's
impact on everyday life and overall health can no longer be set aside
with a clear conscience.
SAMHSA's National Survey on Drug Use and Health indicates that
nearly 21 million Americans who needed treatment for an illicit drug or
alcohol use problem did not receive treatment. In addition, there were
over 11 million adults who reported an unmet need for treatment or
counseling for mental health problems in the past year, including 5.7
million adults who did not receive any mental health treatment at all.
Helping more Americans achieve a healthy and rewarding life in the
community in ``the land of promise'' is not a vague or lofty goal. It
is an achievable milestone in our Nation's story which is already
underway through advancements in science and research, the introduction
of promising and effective treatments, systems transformation, public
outreach and education, and strong national leadership and commitment.
Thank you for the opportunity to appear today. I will be pleased to
answer any questions you may have.
Senator Reed. Thank you very much, Dr. Cline.
We'll take 5-minute rounds and, let me begin.
One of the issues that is highlighted both by your
testimony and Congressman Kennedy's testimony was the
interaction between mental health and physical health. And the
reports recently--and we've cited them, about shortened
lifespan of people with mental health problems, should give us
pause. It raises many, many questions, but among those--what is
your sense of the ability of primary care providers to
recognize and effectively treat mental health issues? And, on
the other side of the equation, the ability of mental health
workers to recognize physical issues, and get that patient into
some type of health screening?
Mr. Cline. I believe that we have been sorely inadequate on
both fronts. I think that there is a great deal of potential
that is just now being recognized. Again, this public health
approach really emphasizes the need to address the
comprehensive needs of individuals. We have many qualified
experts who have been doing an incredible job of providing the
services they provide, but those services have been so narrowly
focused, that we have missed that broader picture of
individuals.
I heard a very compelling story of someone who had
struggled with their recovery, with mental illness. On the path
to recovery, doing very well, only to die of a heart attack in
their early fifties. So, I think there is, there's increased
recognition across the States and communities about the need to
integrate and address these needs, wherever possible.
Senator Reed. I presume, also, that raises the stakes for
the training programs that will allow both medical
professionals and mental health professionals to recognize
different disorders and at least recommend treatment, is that
correct?
Mr. Cline. I think that's absolutely true. And again,
that's the opportunity--if you're working with an individual,
and you have that person, and you have a relationship, and
you're providing some aspect of their care, what a great
opportunity, then, to broaden that to address these other
areas, or make sure that, at least, that's coordinated with
other aspects of care.
Senator Reed. One of the areas that we're all concerned
about, I know you are, Doctor, is measuring outcomes, which is
a very difficult proposition in any endeavor, public or
private.
Recently, there's been a transition from a performance
partnership grant initiative that was directed by Congress
during the last reauthorization, to the new national outcomes
measures system. Why don't you give us an idea of the rationale
behind the change, what you hope to accomplish, and why is this
a better approach?
Mr. Cline. The approach we have now is focused on
recovery--recovery for individuals. What makes a difference in
an individual's life, and for that person's family? And, that
has changed in emphasis from kind of a quantitative, counting
numbers of services, to a more qualitative aspect, and how is
that making a difference?
These are the types of things that we know are important to
help an individual obtain and then sustain their recovery,
things like having a job, things like connecting with their
family, decreased contact with the criminal justice system.
Those types of issues which are meaningful in a person's life
and are very, very relevant to their recovery.
So, it's a change from a focus on, specifically on
treatment, and measuring that treatment, to a focus on
recovering, and measuring recovery.
Senator Reed. Now, do you think you have the information
systems and the metrics to make this system work?
Mr. Cline. These outcome measures have been in development
for several years, again, this is a partnership that I
referenced, with the States. The majority of States have been
voluntarily submitting that data already to SAMHSA. There are
10 domains for getting all of those demands. For some States,
that has been quite a struggle, in terms of developing that
infrastructure. They have not had that capacity. So, SAMHSA is
providing technical assistance, trying to work with those
States so they will have that capacity to provide those data to
SAMHSA. We're not there yet, but we're well on our way.
Senator Reed. And, in that regard, in terms of outcomes,
the Access to Recovery Program has been on the books and in the
field for a few years now. Have you looked at outcome measures
in that program relative to other programs? Have you drawn any
preliminary conclusions?
Mr. Cline. The preliminary outcomes are looking very good
for the Access to Recovery Program. When the Program--and it's
still in its relative infancy--so we'll track that data over
time, as well. But, the initial data shows approximately a 70-
percent abstinence rate for individuals who are discharged from
the Access to Recovery program, a significant increase of about
20 percent for individuals, in achieving housing--independent
housing--and over 25 percent increase in employment for those
individuals. So, the preliminary data are looking very
encouraging.
Senator Reed. And, you're drilling down to the different
treatment modes that they're using, and making connections in
terms of what treatments they're getting and leading to success
or failure?
Mr. Cline. What we know so far is that we have broadened
the number of providers who have been involved in that. We
believe that that is significant. We don't have a large enough
pool of that data yet to draw conclusions from that.
Senator Reed. Thank you, Doctor, very much.
Senator Enzi.
Senator Enzi. Thank you for your testimony, and also the
excellent answers to those questions.
I want to delve a little bit more into the recently
released principles that included using the public health
approach to deliver services, which eliminates funding silos,
among other things. I want to know how you plan on carrying
that out, but mostly what tools you need to carry out those
objectives. What do we need to ensure that these funding silos
can result in a better approach to delivering services? The
coordination that was talked about?
Mr. Cline. Thank you for that question.
I have more detail on this issue than I might have
otherwise. Oklahoma was one of the States, one of the initial
seven States that had received a transformation grant through
SAMHSA several years ago. As part of that process, that allowed
us to develop a plan, by State, individually to address the
needs, recognizing that the structure in Oklahoma may be very
different than the structure in Wyoming, or Arkansas, or
Massachusetts, and so we don't have a one-size-fits-all. What
that allows us to do is to identify the needs within those
particular States, that allows us to then develop a
comprehensive plan which looks--not only of the needs within
the behavioral health system--but looks at the needs across the
entire community, and the State.
As you know, there are many other entities that are
involved in providing behavioral health care. So, that
transformation is much broader, and that's where we get into
the public health model, in terms of involving schools, and in
terms of involving employers, and practitioners in hospitals,
and other people in the community. So, some of the tools that
are needed are that technical assistance to the States, to help
them develop their own resources, to help them explore their
own needs and develop that plan, and then to implement that
plan.
There also has been a great deal of sharing of that
information from those seven States--now nine States, two other
States were added--for that initial transformation effort, and
we are spreading that even beyond that pool of nine States, and
showing that. We recently had a conference where individuals
from the States that have been actively engaged in this, were
sharing this with other States. So, they can learn from the
lessons that have been learned the hard way in some of those
other States.
But, it's a very exciting transformation, there is a
recognition across the board that we have not made the gains,
even though people have been working incredibly hard and
putting resources to meet those needs, we have not been as
effective as we might be, if we had that more comprehensive
public health approach.
Senator Enzi. I think this is related, and we talked about
national outcomes just a moment ago, too, so this is a little
bit of a follow up to that question, as well. For individuals
with co-occurring conditions, is SAMHSA working with the States
to develop the NOMS management system that will reduce the
duplication of records? Such as duplication of information in
paperwork?
Mr. Cline. Well, there are two pieces, I think, that
address that. There's the 10 domains that basically apply,
although there are a couple with variations, applied to both
the substance abuse and the mental health populations. So, that
provides some equitable data, and that's why this was such a
remarkable feat, to have consensus from both fields, across the
country on these 10 domains for the National Outcome Measures.
We also are exploring, and helping States explore, the
possibility of electronic medical records, which is a serious
issue in terms of looking at some of that interoperability
between those records. As you know, there are some
confidentiality restrictions, in terms of 42 CFR for substance
abuse services, and other things that present some challenges
that may be unique to this field. But, I believe that, the
people engaged in that process--and we're seeing great progress
with that.
Senator Enzi. Yes, we're working on the Health IT, we put
out a bill last year, and we're working from that basis and
moving forward, trying to get some of the tools that are needed
there, plus provide the confidentiality.
So, I'll yield the balance of my time.
Senator Reed. Thank you, Senator.
Senator Murray.
Senator Murray. Thank you very much, Mr. Chairman, and I
would like to submit my opening statement for the record.
Senator Reed. Without objection.
[The prepared statement of Senator Murray follows:]
Prepared Statement of Senator Murray
Mr. Chairman and Senator Enzi, thank you for holding this
hearing as we begin updating our Nation's policies on substance
abuse and mental health.
Unfortunately today, most of the agency's authorities have
expired, and that lapse is occurring at a critical time. We
have veterans coming home from combat who need help with PTSD
and other mental health challenges. They face the same stigma
that many others face when they seek mental health care.
And we've all been horrified by what occurred at Virginia
Tech. We have to make sure that people at risk of violence get
the attention and treatment they need, and that those affected
by the tragedy in Blacksburg get counseling and support.
I've been pleased to work on past SAMHSA reauthorizations.
In 2000, we improved our focus on the needs of young people and
created a grant program to address methamphetamine abuse. Since
then, we've targeted underage drinking and preventing youth
suicide.
MY THREE PRIORITIES
As we begin to update the act this year, I'm focused on
several points.
First, we've got to make help more accessible. That means
keeping up with the demand for services and making it easier
for everyone to get those services--whether they have insurance
or not. It means making sure that grant programs have
sufficient funding to meet the needs of our communities.
Second, it's all connected. Individuals are not just
individuals; they're part of a broader community. Mental health
is connected to substance abuse to housing to employment and
more. As I look at SAMHSA's programs, I see that it's all
connected, and that's why our approach has to be comprehensive
and coordinated.
One example of that is mental health parity. We know mental
health is connected to physical health, and it should be
treated that way by insurers. The inability to treat mental
illness the way we treat physical illness has resulted in a
fragmented treatment structure. It has also created a shortfall
in the availability of services.
I'm pleased that our committee has passed mental health
parity, and I'm eager to move that bill forward so that our
entire country can begin to see the benefits of it. And I want
to thank Chairman Kennedy and Senator Enzi for their work on
mental health parity.
Third, when it comes to substance abuse and mental health,
early intervention makes a difference. I'm especially
interested in the support we can provide to young people. The
truth is we can pay now--or we can pay later. Let's be
proactive and help individuals and communities address these
challenges early while there's still time to help them lead
longer, healthier, and more productive lives.
I really want to thank our witnesses for testifying today
and sharing their insights. In the fields of mental health and
substance abuse, I've met so many people who are quietly
working to help individuals change their lives and reclaim
their futures. They do difficult work, and they don't often get
the public credit they deserve. And I just hope that as we
update the policies, we never lose sight of the people they
serve, and how their work--and ours--can make a difference.
Senator Murray. Dr. Cline, my home State of Washington is
facing a meth epidemic, no matter who I talk to--whether it's
law enforcement, or drug counselors, or social workers, or
community leaders, they bring this up to me as the No. 1 issue
that they are trying to deal with in their community, and I
wanted to know if you could update me on what work your agency
is doing to address the meth epidemic, and more specifically,
do you think we need to provide more funding or more authority
from Congress to deal with that issue?
Mr. Cline. My belief is that the authority exists. We've
been providing a great deal of technical assistance, as well as
some grants, and Washington State, in particular, the Access to
Recovery Program that we talked about earlier, is thriving and
serving many individuals who are struggling with
methamphetamine, specifically, in that State.
Again, we've provided that technical assistance, we've had
grants to make certain that States were able to implement
evidence-based practices. At one time, there was a
misunderstanding or a myth in the field that people who were
struggling with methamphetamine could not be treated, the
treatments were not effective. It simply was not true, there
are effective treatments for methamphetamine addiction. So,
it's important to get that message out there, as well.
When we look at the national data, what we see is that the
initiation, those people who are using methamphetamine for the
first time, is actually on the decline. But, at the same time,
we're seeing a significant increase in the number of people who
are being admitted for methamphetamine treatment. So I know
that many States are struggling to respond to meet that need,
which is great.
Senator Murray. Do we have enough resources? Do you think
we need more resources for that?
Mr. Cline. There is great variability by States on that, so
I wouldn't feel comfortable generalizing for the whole country.
I know in some areas of the country, the methamphetamine
epidemic is absolutely devastating, and those States have
reported ongoing struggles in terms of meeting that need, in
terms of workforce to actually meet the need, and treatment
facilities that are trained with the workforce to be able to
use those evidence-based practices, and other States where that
has been less of an issue.
Senator Murray. I'm also very concerned, and have been
working for some time on the issue of our children getting
access to treatment services for mental health and substance
abuse, and I know that SAMHSA has started to shift some
resources more toward children, but we still have a really long
way to go.
In my State, one of the challenges we have is not enough
service providers for children, so that's a real barrier. Can
you talk to us a little bit about your efforts to improve
service and treatment options for children?
Mr. Cline. Sure, and thank you for that question.
As part of this public health model, one of the areas of
focus for SAMHSA is really to intervene as early as possible in
that cycle of addiction, or mental illness. We know that if we
can reach people at the early stages of their illness, the
prognosis is much better, and the negative impact on the
individual and family is greatly decreased.
SAMHSA, I think most people are aware, has a strong track
record in terms of the systems of care approach, which is an
innovative program for children and their families to address
the needs of those children who are struggling with serious
emotional disturbance, which is a program that is comprehensive
in nature that emphasizes collaboration of multiple sectors.
Most often children who are struggling with either
addiction or mental illness, are not engaged with only one
provider--they have special ed services through the school,
they may be involved in child welfare, they may be involved
with the mental health system. So, there's an effort through
that particular grant program to make certain that all of those
individuals are coming together to create one team that's
focused on the needs for that particular family, rather than
working in the silos.
And also, in the area of addictions, a great deal of
concern, now, about underage drinking. And we worked with the
Surgeon General's Office to release his Call to Action, which
is focusing on the reduction and elimination of underage
drinking, which is a persistent problem in our culture today.
Senator Murray. OK, I appreciate that. And finally, let me
just ask you about Veterans--we know there's a high number of
men and women coming home with PTSD and other mental health
issues, and we're hearing more and more reports that are very
disturbing. I know that the VA focuses on that, but I wanted to
find out from you what SAMHSA is doing, if anything, and if
there's anything else we should be looking at, as we get this
influx of soldiers home.
Mr. Cline. Thank you, again, for that question. SAMHSA is
very concerned about this issue. We sponsored a conference,
just within the last year, that focused on returning vets, we
pulled people together from all over the country, asked States
to have representatives from their VA systems, and from their
mental health systems so that they could work together in a
focused way to address those needs back in their States, again
recognizing that we wouldn't simply be saying what is best for
that particular community--we are an ongoing collaboration with
the Department of Defense as well as the VA and the National
Guard, and are actively engaged in that process, in terms of
formulating any kind of contribution that SAMHSA could make
toward that response.
Senator Murray. One of the big issues is the stigma
attached to it, particularly for, ``tough Army guys.'' Is there
anything we should be doing to help our community better
understand that, so that people will get the help that they
need?
Mr. Cline. SAMHSA has been engaged in an anti-stigma
campaign, and again, partnering with several communities across
the country, trying to encourage individuals to ask for help
when that help is needed. We've had ongoing collaboration with
Ad Council, trying to do PSAs that get out there and reach
everyone, not just Vets, but everyone in those communities,
because that prejudice is, of course, deeply rooted in our
culture.
Senator Murray. Can you share some of those PSAs with the
committee, so that we can take a look at them?
Mr. Cline. Absolutely.
Senator Murray. Great, okay. Thank you very much.
Mr. Cline. Thank you.
Senator Reed. Thank you very much, Senator Murray.
Senator Murkowski.
Statement of Senator Murkowski
Senator Murkowski. Thank you, Mr. Chairman.
Dr. Cline, I appreciate your testimony here this morning,
and all that you do with SAMHSA.
You mentioned the suicide rate, and as you know, that is
something that we, in the State of Alaska, continue to struggle
with, particularly in our more remote communities, and our
villages, and particularly with our young Alaska Native men.
Our statistics are, needless to say, very, very, very
troubling.
And you mentioned coming from a small town in Oklahoma, and
knowing the impact to a small community. When we have two young
men or three young men take their lives over the course of a
winter in a village where you only have a couple hundred
people, it doesn't just bring down that family, it destroys
that whole community.
I feel helpless as to what we can do in a State like Alaska
where we are so remote, our villages are so small and our
problems with substance abuse are literally killing our people
and our communities.
I would like for you to comment on how, from a rural
perspective, we can better work with SAMHSA on--particularly
our suicide rate--to reduce that to the extent possible. We're
utilizing some tele-medicine, tele-behavioral health
technology, I think we're starting to make a difference, but
it's difficult when we don't have the facilities.
We can have the programs, and--I'll ramble for just a
moment, if I might--when you're talking about the national
outcome systems, and the way that we address accountability,
focus on a qualitative rather than quantitative approach. I
appreciate that, but I get concerned that if we have to adhere
to an accountability standard, we're going to lose our ability
to really cater some programs that would work in a very
different setting, like a remote Alaska Native village, than
what we do here in Washington, DC.
Can you give me some level of assurance on that, that we
will still have the ability for Manilic Health Corporation to
have their treatment camp, utilizing cultural and their Native
ways to provide for a level of treatment, that we're not going
to be bumping up against a one-size-fits-all approach, because
we have to be able to account for these moneys?
So, my question is two-fold--what can we do on the suicide
front, and with this focus on a National Outcome System, will
we still have the flexibility that we need in many rural parts
of the country to provide for culturally sensitive programs?
Mr. Cline. Thank you for the question.
I had a brief conversation with someone from Alaska
earlier, before this meeting, who talked about the challenge of
the nearest center being several hundred miles away for those
individuals to access any type of care. So, and obviously in
that situation it's difficult to engage the entire family, in
any kind of family-oriented treatment, which we know has often
been most effective, in many situations.
The outcomes that you talk about, I believe are helpful
tools, if you're managing a State system, or whether you're
managing an individual program, so that you have an idea of the
effectiveness of your programs, and you use that, then, as a
management tool for yourself. And I've managed both those
programs, and at the State level, and that information is very
helpful.
There has been a great deal of concern about the
disparities that you're mentioning, SAMHSA has specifically six
suicide grants that are targeted for tribes and Alaska Natives,
so we're working hard to make sure that those grants are as
available as possible. And again, in ensuring that the tribes
are using those dollars and those grants to provide culturally
competent services within their community, it's not a cookie-
cutter approach in doing that.
SAMHSA has also has been engaged in developing and updating
a National Registry of evidence-based programs and practices,
this is a larger registry that looks at evidence-based
practices that actually encourage those communities and others
to submit designs that they know have been successful, in their
particular communities. So, an individual community could go to
this registry, look at this registry, and say, ``Here are some
similar characteristics that we share from our community with
this particular community, and it worked there, so we may try
that.''
The threshold is a little bit different, you're not looking
at, necessarily, randomized controlled studies, or a threshold
that is so incredibly high that it doesn't address the cultural
competency issues of other programs or communities, so we're
very hopeful about that being a useful tool for communities, as
well.
Senator Murkowski. I can't pass up the opportunity to make
sure that you're invited to come up to the State and visit some
of our communities, so that you can appreciate some of the
challenges that we face. We look forward to it.
Mr. Cline. Thank you very much, I appreciate that
invitation.
Senator Murkowski. Thank you, Mr. Chairman.
Senator Reed. Thank you, Senator.
Senator Burr.
Senator Burr. Thank you, Mr. Chairman.
She usually invites you in the dead of winter, I'll just
warn you.
[Laughter.]
Mr. Cline. The travel rates will be cheaper, that will be
good.
Statement of Senator Burr
Senator Burr. Dr. Cline, welcome. We're delighted to have
you at SAMHSA. I think it's apparent, sitting here and
listening to all of the members field questions to you, that
everybody's problem is a little bit unique, it changes a little
bit State to State, region to region. It probably highlights
why your job is vitally important, and why in the functions of
SAMHSA we should, very much be focused on outcomes, and less on
process, because the objective here is, how do we help as many
people as possible, and how do we keep them part of their
communities, and more importantly, productive parts of their
communities? But, we do that with the real understanding that
we've got challenges.
I want to go into two areas, the first one, homelessness,
chronic homelessness, specifically. Because we know SAMHSA
partners with the Department of Education under the Safe
Schools, Healthy Students initiative. I think it's safe to say
Senator Reed and I, and I'm sure others, think that SAMHSA
should also partner with the Department of Housing and Urban
Development to provide targeted funding for mental health and
substance abuse services at permanent supportive housing
facilities, to help end this cycle of chronic homelessness that
exists.
The city of Portland recently reduced the number of
chronically homeless by 70 percent, when the city, the county,
the Housing Authority partnered to provide resources so
agencies could open 480 new units of permanent, supportive
housing. And I know SAMHSA has the authority to provide some
funding to organizations providing services to homeless
individuals, but how much of that currently supports this
highly cost-effective model, like Portland?
Mr. Cline. I don't have an exact figure for you, Senator,
but what I can tell you, the key word that I have heard in your
question was really around partnership, and the effectiveness
of the program that you describe.
What we found is that when we provide that flexibility,
especially in the area of homelessness, that is a community-
based issue and challenge, that there are so many individual
characteristics, by community, that we want to ensure that we
are not locking in one particular remedy that we feel can
address that issue. So, that flexibility, that partnership
through multiple agencies, we feel, has been the most effective
tool in addressing homelessness.
Senator Burr. Well, as you know, Washington has a long
history of thinking that they know best. And, I think what
you've heard up here, is that communities know best. And those
partnerships, I believe, are absolutely valuable.
Area two--disaster response. It's my understanding, if
correct, that SAMHSA is authorized to take up to 2\1/2\ percent
of your overall budget, the discretionary budget, and to surge
that to address mental health and substance abuse needs in
response to an emergency. In addition, FEMA receives funding
from the Federal Government for mental health and substance
abuse, in the case of emergencies.
One, is my understanding correct, and can you share with us
the process that both agencies go through, if they do at all,
to coordinate the activities, and specifically, who calls the
shots, when you've got two entities like that involved?
Mr. Cline. Well, in answer to the question of who calls the
shots, the majority of these disaster response dollars, when
they go to the States are actually implemented, then, by the
States. So, SAMHSA is not actually providing the services,
although we have provided technical assistance, and we have
also deployed staff. After the hurricane, I believe we had
about 250 of the 500 staff at SAMHSA who were actually deployed
to help provide, you know, in that particular crisis.
The FEMA dollars that come, of course, from FEMA, travel
through SAMHSA and are provided for crisis counseling response
in an emergency situation.
We also have other dollars through the surge grant, which
is available, but is not administered through FEMA.
Does that help with that?
Senator Burr. Sure.
Let me ask, SAMHSA-specific, what kind of pre-event
research, planning, training goes on to prepare for and respond
to the mental health needs of a disaster?
Mr. Cline. There's a great deal that goes on, and SAMHSA
has actively partnered, again, with the States to ensure that
they have plans in place that they are ready to implement.
There have been several national conferences, and using the
same model that I described earlier around the returning Vets,
where States have been encouraged to bring teams of
individuals, those very same teams that would be utilized in an
emergency, not just the behavioral health individuals, but
other individuals that would be involved from FEMA and other
emergency preparedness response organizations within their
State, could be members of Red Cross and others, to make sure
that they have that plan in place and ready to go.
So, we've encouraged that, we've provided, again, resources
and technical assistance to make sure that the States are
prepared.
Senator Burr. Last thing, as it relates specifically to
SAMHSA's experiences in Katrina and Rita--what three things
would you say that SAMHSA learned to improve the provisions of
mental health and substance abuse services, post those
disasters?
Mr. Cline. I think one of the, and this is really from my
own perspective, and not necessarily from SAMHSA's, but I think
that one of the lessons learned has been the regional impact of
disasters, and the importance to make sure that there is
coordination and communication across States and across
jurisdictions. I think that was less clear than before, when
specific disasters were much more focal in their nature, and so
the response was much more focal.
What we saw from the hurricanes was that incredible ripple
effect, that went across multiple States, States that were
directly impacted by the hurricanes, and also the States that
were impacted by the exodus of individuals leaving, so I would
say that was the biggest lesson learned.
I think another lesson learned was the importance of having
a flexible workforce who can be deployed to meet that need in
time of crisis. What we saw with this hurricane response was
that many of the professionals left, and didn't return to their
communities, which left an incredibly fragile system without an
adequate workforce to address that need. And that had not been
anticipated.
Senator Burr. Thank you, Dr. Cline.
Mr. Cline. Thank you, sir.
Senator Burr. Thank you, Mr. Chairman.
Senator Reed. Thank you very much, Senator Burr.
Dr. Cline, thank you for your testimony, I know we all look
forward to working with you through this reauthorization, and
all of your endeavors. Thank you.
Mr. Cline. Thank you, Mr. Chairman.
Senator Reed. Let me now ask the third panel to come to the
witness table, please.
I would like to first introduce Ms. Lisa Halpern, and
welcome you, Lisa, here today.
Lisa is currently the Program Director of the Dorchester
Bay Recovery Center in Dorchester, Massachusetts, and she works
very closely with the National Alliance for the Mentally Ill,
and she is a representative of NAMI today.
She has a very distinguished academic and professional
biography. But, while she was a student of the Kennedy School
in 1999, Lisa was diagnosed with schizophrenia. After a year's
leave, Lisa was able to return to Harvard, and with the support
of school administrators and faculty, completed her studies at
the Kennedy School of Government in 2001. So, as a fellow
alumni of the Kennedy School, I'd like to welcome you here
today. Thanks.
Lisa has worked at the Office of the Commissioner of Mental
Health in the Commonwealth of Massachusetts. She is an active
volunteer in NAMI's Massachusetts affiliate, volunteering as a
Peer Mentor Program Coordinator/Trainer, and doing much to help
so many people, we thank you for that.
Lisa is a 1995 summa cum laude graduate of Duke University
with a double major in economics and public policy, and she's
the recipient of numerous awards including the 2006
Massachusetts Behavioral Help Partnership Recovery Award. We
thank you for being here today.
I would now like to also recognize and introduce Roger
McDaniel.
Roger, Senator Enzi had to leave for the floor, he's
managing the FDA bill, he so much wanted to introduce you
personally, I know you're old friends from Wyoming.
Roger has a remarkable background, also, he's the Deputy
Director of the Wyoming Department of Health, he's responsible
for mental health and substance abuse services. He began his
public life at the age of 22 in the Wyoming Assembly, where he
served for 10 years. In 1980, he received his law degree from
the University of Wyoming. Together with his wife, Patricia,
they have been very active in numerous philanthropic endeavors,
including Habitat for Humanity, and then in 1996, Roger
enrolled in a Master's of Divinity Program at Iliff School of
Theology in Denver, where he was ordained as a Minister in
1999.
Welcome, Reverend.
And, he was a fellow at the Cathedral College at National
Cathedral in Washington, DC. We look forward to your testimony.
And now, I'd like to defer to Senator Burr to introduce Mr.
Allebaugh.
Senator Burr. Thank you, Mr. Chairman, let me at this time
welcome all of our witnesses, and we're particularly pleased to
have a Duke graduate. If you can't live in North Carolina, at
least we like to educate you there.
[Laughter.]
Terry Allebaugh is a founder and Executive Director of
Housing for New Hope, located in Durham, North Carolina, as
well. Terry founded Housing for New Hope in 1992, after several
years of leading a community shelter. I had the privilege to
visit his organization, whose mission is to encourage and
assist homeless people, and other persons in crisis, to move
toward stable, hopeful and independent lives.
Under Terry's leadership, Housing for New Hope established
transitional housing programs, The Phoenix House, and the Dove
House, as well as permanent supportive housing facilities for
folks with disabling conditions, such as mental illness.
They also provide crisis assistance for families with
children, and disabled adults who are at risk of becoming
homeless.
Terry operates a substantial Project for Assistance and
Transition for Homelessness, the P.A.T.H. Program for outreach
to the chronically homeless who are mentally ill. Terry is a
Board Member of the North Carolina Council to End Homelessness,
and is Chair of the Council to End Homelessness in Durham,
North Carolina.
He earned his Bachelor Degree at Buria College, and has
completed 2 years of education at Duke University Divinity
School.
Terry, it is a delight to have you here to testify, as it
is for all of our witnesses.
Thank you, Mr. Chairman.
Senator Reed. Thank you, Senator Burr.
Ms. Halpern, why don't you begin, and then we'll go to Mr.
McDaniel, and then Mr. Allebaugh.
STATEMENT OF LISA HALPERN, CONSUMER, MEMBER OF THE NATIONAL
ALLIANCE ON MENTAL ILLNESS (NAMI), DORCHESTER, MASSACHUSETTS
Ms. Halpern. Thank you all. Senator Reed, and members of
the committee, I am Lisa Halpern. I currently work as Program
Director of the Dorchester Bay Recovery Center run by the
VinFen Corporation in Dorchester, Massachusetts. At the Center,
I coordinate and provide peer-directed services, support, and
education to promote recovery for consumers living with mental
illness and substance abuse. I also work at NAMI's
Massachusetts affiliate as manager of In Our Own Voice, an
outreach and support program in which consumers help educate
the public about mental illness.
My story, like each of the millions of Americans living
with serious mental illness, is unique, but what it
demonstrates, as do so many others, is that recovery is an
achievable goal if you are able to access the necessary
treatment and support services.
The overt onset of my schizophrenia occurred when I was in
my mid-twenties and had completed undergraduate studies at Duke
University, graduating summa cum laude with double majors. I
then received two prestigious merit-based fellowships to study
at Harvard.
However, when I began studies at the Kennedy School in
1998, I started getting lost on a three-block walk to school. I
then realized I was unable to count simple change, all the
coins look identical to me. So, I began to pay for everything
with $20 bills. It was clear that I would need a break from
graduate school and I took a 1-year medical leave, as by that
time, I had lost the ability to read, to write, and my I.Q. was
measured at 70, borderline mental retardation.
During this time in June, 1999, I was first diagnosed with
schizophrenia. When I returned to Harvard that fall, I was
fortunate to receive extraordinary support from school
administrators and faculty. So, I was able to complete my
graduate studies in 2001, and then I worked for 2 years at the
Office of the Commissioner of Mental Health in Massachusetts.
In 2003, I became the first peer counselor for an
innovative, newly created, assertive community treatment
program run by Westridge Community Services, that targets
individuals with co-
occurring mental illness and substance abuse. While working at
Westridge, I also became active in NAMI's Massachusetts
affiliate as a speaker, manager, and trainer for the In Our Own
Voice Program, a recovery-based consumer speaking program.
Senators, what has really made the difference in my path
toward recovery is not just being able to access medication to
manage the symptoms of my illness, but also being able to
engage in self-
directed care and having peer support. This is central to what
proven evidence-based models, such as Assertive Community
Treatment--often called ACT--are all about.
In examining the current State of publicly funded mental
health services across the Nation, NAMI has found that there is
an almost total absence of uniform gather-reporting systems,
designed to measure whether or not States are investing in
effective models, such as ACT, and whether or not there's
fidelity to evidence-based programs.
NAMI urges the committee to include in SAMHSA
reauthorization legislation an initiative to establish, in
consultation with all stakeholders, especially consumers and
families, outcome measures for States that will provide
consistent, reliable information on State systems and services.
Having worked as a peer support specialist for a number of
years and having benefited personally from peer-led support
groups and human services training, I can tell you that ACT
works. Unfortunately, only a small percentage of people living
with schizophrenia and bipolar disorder are accessing evidence-
based, recovery-
oriented services, such as ACT.
NAMI's Grading the States Report, published last year,
found that less than 10 percent of people with serious mental
illness lived in communities that had ACT programs available.
Mr. Chairman, in my full written statement there are a
number of suggestions from NAMI for SAMHSA reauthorization. For
the time being, I will stop. Thank you for the opportunity to
share my story with the committee.
[The prepared statement of Ms. Halpern follows:]
Prepared Statement of Lisa Halpern
Chairman Kennedy, Senator Enzi and members of the committee, I am
Lisa Halpern. I currently work as Program Director of the Dorchester
Bay Recovery Center, run by the Vinfen Corporation in Dorchester,
Massachusetts to provide peer-directed and operated services, support
and education to promote recovery. I also work at NAMI's Massachusetts
affiliate as Manager of In Our Own Voice, an outreach and support
program in which consumers help educate the public on mental illness.
Mr. Chairman, my story--just like that of millions of Americans
living with serious mental illness--is unique to me. But what it does
share in common is an overriding theme that recovery is possible, if
the right systems and supports are in place. First, a little background
on my personal story:
Unlike many people living with schizophrenia, the overt onset of
the disorder occurred for me when I was already in my twenties and had
already completed undergraduate studies at Duke University, having
graduated summa cum laude and Phi Beta Kappa, with double majors. I
then received two merit-based fellowships to study at Harvard. It was
there, in June 1999, that I was first diagnosed with schizophrenia and
had two stays at McLean Hospital that year. This devastating thought
disorder had a profound impact on my functioning and resulted in memory
loss and the inability to manage even the most basic tasks such as
counting change, reading and other activities of daily living.
After 1 year of medical leave, I was able to return to the Kennedy
School of Government at Harvard. I was fortunate to receive
extraordinary support from school administrators and faculty (for
example, more time for examinations and class credits for summer
research). With continuing support through a Kennedy Fellowship and the
Paul and Daisy Soros Fellowship for New Americans, I was able to
complete my graduate studies in 2001. After completing my graduate
studies, I spent 2 years at the Office of the Commissioner of Mental
Health in Massachusetts.
In 2003, I joined a newly created assertive community treatment
program in Cambridge run by Westbridge Community Services and worked as
the program's first peer counselor. At Westbridge, I got my first
experience supervising and working with other peer specialists,
participating in a Wellness Recovery Action Plan (WRAP), offering staff
training on mental illness, and providing family and participant
outreach, education and therapy for people with severe and persistent
mental illness and substance abuse disorders. In 2003, I also became
active in NAMI's Massachusetts affiliate as a speaker, coordinator and
trainer for NAMI's In Our Own Voice, a recovery-based consumer speaking
program.
Mr. Chairman, at the outset I would like to express NAMI's strong
support for S. 558, the mental illness insurance parity legislation
reported by the committee back in February. NAMI strongly supports this
important measure to require employers and health plans to cover
treatment for mental illness on the same terms and conditions as all
other health conditions. This legislation has been stalled in the
Congress for too many years. NAMI applauds your efforts to move this
bill forward early in the 110th Congress. We look forward to working
with you to move it to the full Senate as soon as possible.
REAUTHORIZATION OF SAMHSA
Before sharing with the committee NAMI's recommendations on
legislation reauthorizing SAMHSA, I would like to echo the sentiments
of the President's New Freedom Initiative Mental Health Commission
report in noting that our Nation's public mental health system remains
a ``system in shambles.''
In March 2006, NAMI released a comprehensive report on the
performance of States in meeting the needs of adults with serious
mental illness. Our report ``Grading the States'' is the first
comprehensive survey and grading of State adult-public mental
healthcare systems conducted in more than 15 years. Public systems
serve people with serious mental illnesses who have the lowest incomes.
NAMI's report makes clear that nationally, the system is in
trouble: the report gives the Nation a grade of D for its system of
care for people with serious mental illness. The report also documents
that too many State systems are failing--only 5 States received a B
(Connecticut, Maine, Ohio, South Carolina, and Wisconsin), 17 States
received Cs, 19 States got Ds, and 8 got Fs (Iowa, Idaho, Illinois,
Kansas, Kentucky, Montana, North Dakota, and South Dakota).
Each State grade is based in part on a ``take-home test,'' in which
survey questions were submitted to State-mental health agencies. All
but two States responded. Colorado and New York declined. They have
been graded ``U'' for ``Unresponsive.'' Based on the surveys and
publicly available information, States were scored on 39 criteria.
Consumer and family advocates also provided information through
interviews that contributed to State narratives.
The report also included a ``Consumer and Family Test Drive,'' a
unique, innovative measurement. NAMI had consumers and family members
navigate the Web sites and telephone systems of the State-mental health
agency in each State and rate their accessibility according to how
easily one could obtain basic information. The report contains a
narrative for each State that also includes a list of specific
``Innovations'' and ``Urgent Needs'' to help advocates and policymakers
further define agendas for action. An overall list of innovations
provides an opportunity for States to learn from one another. As the
grade distribution in the report demonstrates, our Nation still has a
long way to go to achieve a ``New Freedom'' for people living with
serious mental illness--a freedom based on recovery and dignity. NAMI
is planning a follow up report in 2008 and we hope to see long overdue
improvements in the results.
As this committee moves forward on SAMHSA reauthorization
legislation, NAMI would urge you and your colleagues to keep these
goals of recovery and independence foremost in mind. Along those lines,
NAMI would make the following recommendations.
Establishment of State Outcome Measures and Accountability
SAMHSA should be required to establish outcome measures for States,
building on previous initiatives such as the National Outcomes Measures
initiative (NOMS), the State Pilot indicator Grant Project, and other
related initiatives. In consultation with providers, consumer and
family organizations, and State-mental health agencies, SAMHSA should
be directed to develop measures that will provide consistent reliable
information on State systems and services.
Obviously, State and local public mental health systems will need
some time to adopt and implement such measures. However, as a nation we
need to set ourselves toward reaching a goal for meaningful outcome
measures that allow us to assess the performance of State-mental health
agencies and local public sector programs. In NAMI's view, the most
effective means of achieving this is to have SAMHSA require every
State, as a condition of receipt of funding for services and supports
from the mental health block grant, Transformation State Incentive
grants, and child mental health systems of care grants, to report on
all outcome measures developed by SAMHSA.
It is also worth noting that while some reporting on the types of
services provided is required under current law, these reporting
requirements are not generally linked in any way to evidence-based
practices that are designed to deliver measurable outcomes in terms of
recovery such as integrated treatment for individuals with co-
occurring mental illness and substance abuse, assertive community
treatment (ACT), peer counseling and supports, multi-systemic therapy
for children and adolescents, and family psychoeducation, to name just
a few.
Despite years of discussion in the mental health field about
evidence-based practice, we are still falling short on uniform data on
the availability of these services across States or regions or the
degree to which programs that provide these services achieve fidelity
to standards developed by SAMHSA itself. SAMHSA authorization provides
us with an important opportunity to make progress toward this
objective.
Establishment of Federal Interdepartmental Task Force on Mental Health
NAMI supports the creation of a Federal Interdepartmental Task
Force on Mental Health that should include involvement from the vast
array of Federal agencies that administer programs that touch the lives
of children and adults living with mental illness and substance abuse
disorders. This should include the Secretaries of Housing and Urban
Development, Labor, Education, Veterans Affairs, Health and Human
Services (including CMS, SAMHSA, CDC, NIH and HRSA), the Social
Security Administration, and the Attorney General. The goals of this
Task Force should include:
1. improved coordination of mental health policy in the operation
of pertinent Federal programs;
2. identification of policies and practices that contribute to
fragmentation in care-delivery and barriers to care-integration;
3. development and implementation of interagency demonstration
programs to foster mental health promotion, early intervention, and
recovery-focused services; and
4. an annual report to Congress from the respective Secretaries
which shall include recommendations for fostering improved
collaboration and coordination of mental health policy, financing and
management of recovery-focused service-
delivery.
Program Sustainability Through Consumer and Family Engagement
SAMHSA has made enormous progress in recent years integrating the
views of consumers and families into every major activity at the
agency. This is a tremendous step forward. Unfortunately, this progress
is not always mirrored at the State and local level. In order to jump
start this process at the State and local level, SAMHSA and CMHS should
be granted the authority to require State and local government
recipients of SAMHSA funding above a specific threshold to allocate at
least 5 percent of such funds to one or more not-for-profit
organizations that represent consumers and families, to ensure that
such organizations are able to participate in all aspects of planning
and implementation of the SAMHSA grant or program.
Reducing the Use of Seclusion and Restraint
When SAMHSA was last reauthorized by Congress in 2000, this
committee included a new Part H that contained requirements pertaining
to the rights of residents of hospitals (private and public), nursing
facilities, intermediate care facilities, or other health care
facilities that receive Federal funds, including restrictions on the
use of restraints and seclusion. NAMI supports expansion of these
requirements through establishment of a new training and technical
assistance center to focus on the prevention of seclusion and restraint
in public and private facilities that provide mental health services to
adults and children. Such training and technical assistance should
include assisting States in facilitating the use of psychiatric advance
directives for consumers in the community and the implementation of
PADs by facilities.
It must also be pointed out that although the Children's Health Act
of 2000 required that regulations be promulgated to give effect to Part
H within 1 year of enactment, these regulations have never been issued
by SAMHSA. Although some progress has been made in reducing the
inappropriate use of restraints and seclusion, far too many children
and adolescents continue to die or suffer serious injuries resulting
from the inappropriate use of these aversive measures. Thus, we urge
the committee to include in statute specific standards pertaining to
restraints and seclusion in facilities and programs covered under Part
H. At a minimum, these should include:
Requiring that thorough and comprehensive face to face
evaluations of all individuals placed in restraints or seclusion be
conducted by a physician or licensed independent practitioner within 1
hour of the time that these measures are instituted.
Continuous monitoring of individuals in restraints or
seclusion, either face to face, or using video and audio equipment.
Debriefing of staff involved in the use of restraints or
seclusion after each incident, preferably involving the individual
subjected to these measures as part of the debriefing process.
Debriefing has been shown to be very effective in sensitizing staff to
alternative, less draconian measures for de-escalating crises.
Limits on the length of orders authorizing the use of
restraints and seclusion to 1 hour for individuals under 18 and 2 hours
for adults.
Requirements that all deaths and serious injuries that
occur within 1 week of the time restraints or seclusion are used must
be reported by the facility in which these measures were instituted to
the designated Protection and Advocacy agency located in the State in
which these deaths or serious injuries occur. Additionally, all deaths
and serious injuries that occur beyond 1 week of the time restraints or
seclusion that can reasonably be assumed to be related to the use of
these measures should be reported as well.
Separate Legislative Proposals for SAMHSA Reauthorization
NAMI recommends that this committee consider amending any SAMHSA
reauthorization bill to add separate legislation that would improve the
performance of our Nation's mental health system and benefit the most
vulnerable children and adults living with mental illness.
Reauthorization of the Garrett Lee Smith Memorial Act.--Suicide
remains the third leading cause of death for those between the ages of
10 and 24 and the second leading cause of death for American college
students. Programs under the Garrett Lee Smith Act (first authorized by
Congress in 2004) have been highly successful helping States and
localities, as well as colleges and universities address this epidemic.
This committee should reauthorize and expand this highly successful
program.
Keeping Families Together Act (S. 382).--Every year, thousands of
families across the country are forced to give up custody of their
children to the child welfare and juvenile justice systems to secure
mental health services. The Keeping Families Together Act--introduced
by your colleague Senator Susan Collins--is an important effort to keep
children with mental illnesses who are in need of services at home and
in their communities and most importantly, with their families. It
encourages States to build effective systems of care for children with
mental illnesses and their families and move away from costly
residential and institutional services that too often require families
to transfer custody of their children to the State to access these
costly services.
Services for Ending Long-Term Homelessness Act (S. 593).--In order
to make continued progress toward the national goal of ending chronic
homelessness by 2012, it is critical for HHS and SAMHSA to step up and
increase investment in services in permanent supportive housing that
are needed to help people with mental illness and co-occurring
substance abuse disorders from falling back into chronic homelessness.
SELHA--introduced by Senators Richard Burr and Jack Reed--achieves this
critical goal and should be a part of SAMHSA reauthorization
legislation.
Thank you for giving me this opportunity to provide input to the
committee.
Senator Reed. Thank you very much, Lisa, not only for your
story, but your courageous example. Thank you so much.
Mr. McDaniel.
STATEMENT OF RODGER McDANIEL, DEPUTY DIRECTOR, WYOMING MENTAL
HEALTH AND SUBSTANCE ABUSE SERVICES DIVISION, CHEYENNE, WYOMING
Mr. Daniel. Mr. Chairman, Senator Burr, thank you for the
opportunity to speak with the committee as you consider the
reauthorization of SAMHSA.
I want to begin by acknowledging the excellent work that is
being done by SAMHSA, NASADAD, NIDA, and others, to advance
substance abuse practice and policy beyond the myths, using
science to improve the outcomes.
Mr. Chairman, over the last 40 years, I have viewed the
substance abuse system, in particular, from several
perspectives--as a State lawmaker, as a lawyer, a jail
chaplain, and working in child welfare. I have worked with
addicted persons, and the programs that serve them.
However, it was not until I experienced these problems as a
parent, that I began to really seek the answers to hard
questions, such as--why do people use drugs when the
consequences are so dire? With excellent treatment, our family
member did well and has gone on to enjoy a good life,
interrupted only briefly by substance abuse.
But while that was happening, I saw countless addicts in
corrections and the child welfare system living out actively
hopeless lives, getting either no treatment, or ineffective
treatment. Myths such as, an addict really wants to have it
before treatment will work, effectively substitute for the
responsibility of the system to provide outcomes. Contrary to
popular notions that addiction is the result of character
defects or bad parenting, addiction is a chronic, relapsing
brain disease characterized by compulsive drug seeking and use,
despite harmful, even catastrophic consequences. While the
initial decision to use drugs is a choice, there comes a time
when continued abuse turns on the addiction switch in the
brain. That time can vary, depending on factors ranging from
genetics, to environment, to the type of drug, and frequency of
use, but it is an actual rewiring of the brain chemistry that
trips the switch. Choice is then replaced by a brain-driven
compulsivity to use drugs.
An important goal of the current research is to understand,
through the use of various scanning technologies, the changes
in the brain that facilitate a transition from occasional,
controlled drug use, to the loss of behavioral control over
drug-seeking and drug-taking that defines chronic addiction.
I have provided for the committee a picture of some of the
brain scans from a NIDA publication that dramatically depict
the changes that physically occur in a brain as a person
transcends from nonuse, to addiction, and then the regeneration
of the brain out into abstinence following treatment.
The brain science should be the foundation of treatment, as
well as public policy. The brain scans demonstrated, for
example, why typical probation programs do not work as well as
fully supervised drug courts and why the 15/22 rule of the
Adoption and Safe Families Act can be a very effective tool in
coercing addicted parents into treatment and recovery.
Mr. Chairman, Senator Burr, there's a really remarkable
story in yesterday's Washington Post about the tragedy at
Virginia Tech. Headline, Cho Didn't Get Court-Ordered
Treatment, which amply demonstrates some of what representative
Kennedy and others have talked about, about the fragmented
system. There's a quote in the story that talks about how Mr.
Cho did not receive treatment, was court-ordered to receive
treatment, and it says, quoting a counseling center official,
``When a Court gives a mandatory order that someone get out-
patient treatment, that order is to the individual, not the
agency.'' And, then it concludes with this remarkable statement
that demonstrates the problems in the system at the ground-
level. ``The one responsible for ensuring that the mentally ill
person receives help in these sorts of cases,'' he said, ``is
the mentally ill person.''
Mr. Chairman, that reality is also in substance abuse, as
well. And, it demonstrates the significant fundamental gap
between the science and the practice.
Mr. Chairman, I also want to say that Wyoming and the other
States feel as strongly as any Member of Congress about
accountability. The States working with SAMHSA and NASADAD have
made excellent progress on the establishment of National
Outcome Measures.
In Wyoming, the Governor and the legislature have enacted
legislation, the legislature has enacted legislation at the
Governor's recommendation, requiring the use of the National
Outcome Measures, and requiring that we withhold funds from
providers until we have agreements on measuring those outcomes.
Finally, I encourage the Congress to provide flexibility.
As Senator Burr and others acknowledged, substance abuse is
ultimately a local community experience. The problems of
substance abuse are different, not only from State to State,
but within States from community to community, and they will be
solved more by local community leadership. Those who live in
the neighborhoods affected have more at stake than do
Government agencies.
My time has expired and, Mr. Chairman, I'll close by
encouraging greater diffusion of the scientific knowledge of
the nature of addiction, incentives for continued
accountability, and a system flexible enough to encourage and
empower local community-based leadership as partners with the
Congress and the States to do this urgent work.
Thank you.
[The prepared statement of Mr. McDaniel follows:]
Prepared Statement of Rodger McDaniel
Mr. Chairman, Ranking Member Enzi and members of the committee, I
am Rodger McDaniel. I am the Deputy Director of the Wyoming Department
of Health with responsibility for the Mental Health and Substance Abuse
Services Division. I am also a member of the National Association of
State Alcohol and Drug Abuse Directors (NASADAD). I am grateful for the
opportunity to share my thoughts with you as you consider legislation
reauthorizing the Substance Abuse and Mental Health Services
Administration and am appreciative of the work of this committee and
your colleagues in the Congress to help the States meet the growing
challenges of substance abuse and addiction.
Some time ago I came across a May 9, 1897, issue of the Saratoga,
Wyoming newspaper, The Saratoga Sun. A front page editorial read in
part:
``There is entirely too much drunkenness in this town for the
comfort of peaceable and law abiding people. It is hardly
possible for a lady to pass along the street without having
drunken and profane language issuing from the saloons there.
Drunk men and lewd women should be made to keep their places.''
Of course, these problems were not new to the 19th century west.
From ancient times, societies have grappled with the problems caused by
the excessive use of mind altering substances. For the better part of
all of those efforts over many centuries, there was little in the way
of science to illuminate the path. In the last decade, that has changed
primarily because of an explosion of good science to provide guidance.
However, it remains the case that both policy and practice are based,
more often than we would like, on myth than on science.
The preface to Rethinking Substance Abuse: What the Science Shows
and What We Should Do About It, a 2006 book edited by doctors William
R. Miller and Kathleen M. Carroll includes this ``to the point''
history of attempts to remedy substance abuse and addiction.
``Historically, problem drinkers have been whipped, dunked,
shocked, poisoned with potions, chained, dialyzed, terrorized,
drugged with hallucinogens, Interferon, and all manner of
psychiatric medications. More recently, the users of illicit
drugs have been lectured to, fined, imprisoned, `scared
straight,' given `attack therapy,' and sent to boot camps. * *
* The bad news is that very little science has found its way
into practice.'' \1\
---------------------------------------------------------------------------
\1\ Rethinking Substance Abuse: What the Science Shows and What We
Should Do About It, William R. Miller and Kathleen M. Carroll editors,
Guilford Press (2006) at page xi.
The problems associated with substance abuse have cut a wide swath
across our society limiting the potential of individuals and
institutions. According to the National Conference of State
Legislatures, drug abuse costs exceed $350 billion each year,
accounting for more than 550,000 deaths.\2\ The neglected and abused
children of addicted parents overwhelm the foster care system. Spending
increases in the corrections system and Medicaid are driven in large
measure by drug abuse and addiction. Homelessness and addiction are
interrelated as well. A May 2005 report on homelessness in Wyoming
found substance abuse a major factor in 22 percent of the homeless
population.\3\ I have attached a copy of this report to my testimony
for the committee record.
---------------------------------------------------------------------------
\2\ Substance Abuse as a Cross-cutting Issue by Matthew Greer,
National Conference on State Legislatures (November 30, 2006).
\3\ Homelessness in Wyoming, Wyoming Interagency Council on
Homelessness (May 2005).
[Editor's Note: Due to the high cost of printing, previously
published materials are not reprinted in the hearing record. The report
``Homelessness in Wyoming may be found at http://uwyo.edu/wind/connect/
---------------------------------------------------------------------------
newsletter/past.asp?issue=vol8iss1.inc#spotlight.]
The Wyoming Department of Health is currently completing a study of
the mental health and substance abuse needs of veterans of the wars in
Iraq and Afghanistan. Those wars aside, it is recognized that the rate
of alcohol dependence is greater among the veteran population than
among others. The New York Times reported in March of this year that
alcohol, though ``strictly prohibited by the American military in Iraq
and Afghanistan, is involved in a growing number of crimes committed by
troops deployed to those countries.'' \4\ The well known linkage
between post traumatic stress disorders and substance abuse and
addiction is also a reliable predictor of the additional weight
returning servicemen and women will put on already strained State
substance abuse and mental health treatment services.
---------------------------------------------------------------------------
\4\ New York Times newspaper March 13, 2007.
---------------------------------------------------------------------------
Despite the cause for concern, we are beginning to see signs of the
success of the combined State, Federal and local community efforts.
First time meth use among Wyoming high school students has declined.
Given the uniquely addictive nature of this dangerous drug, this is a
significant success of our joint prevention efforts. From 1999 through
2006, first time meth use among high school students in Wyoming
declined by about one-third. Importantly, Wyoming has also seen
effective law enforcement efforts reduce the numbers of clandestine lab
operations by more than 80 percent since 2001. Certainly meth continues
to enter the State from Mexico and other places but the decline in
State located labs is a meaningful development given the health and
environmental dangers posed by these labs.
Five years ago Wyoming had few meaningful standards for providers.
Today we have research-based standards applicable to any provider
receiving State funds or court referrals. Providers certified under
those strong standards have increased by 63 percent in the last 5 years
meaning there are more providers who are better qualified than ever
before. During that time, Wyoming has gone from three struggling drug
courts to having 25 successful drug courts across the State with
documented outcomes saving tax dollars and holding addicted offenders
accountable while encouraging them into recovery.
Despite these successes, the challenge presented by the abuse of
alcohol and other drugs continues to be daunting and costly. Addiction
affects all Americans and virtually all public services.
I want to especially note the partnership we have experienced in
Wyoming as Governor Dave Freudenthal, the First Lady, Nancy
Freudenthal, and the State legislature have played key roles in
providing necessary leadership and resources for treatment. The First
Lady has been an especially strong voice raising the level of awareness
about the problem of underage drinking. The Governor and the
legislature have responded quickly and decisively to the high rates of
methamphetamine use in our State.
State funding of treatment and prevention have increased
significantly. In 2000, the $2.4 million received by the State in the
Substance Abuse Prevention and Treatment Block Grant represented more
than one-third of Wyoming's expenditures on treatment and prevention.
In fiscal year 2007 the Block Grant's contribution has dropped below 10
percent even though it increased to just over $3.3 million. Our State
now funds more than 90 percent of the treatment and prevention costs.
I would like to offer the committee three recommendations. The
first involves strategies to replace the myths with the science in
order to promote more effective prevention and treatment and more
relevant public policy. The second is that Congress give States and
local communities the flexibility they need to make the best use of
their resources and community leadership to address their own unique
substance abuse problem. Finally, I recommend that we stay the course
on accountability, recognizing the progress that has been made and
working together on a continual quest to improve client outcomes.
MOVING FROM MYTH TO SCIENCE
I am not a clinician nor am I an expert on brain science. I am a
systems person which is to say I think in terms of broad systems and
how they can interact to achieve certain objectives. Far too often,
systems such as the judicial system, child welfare, public benefits,
correctional and educational systems operate in isolation from one
another. People suffering from addictive disorders, however, live in a
different world, one where their use of drugs is a part of a life
organized around a combination of experiences. Addicts often exhibit
failure in the school system and on the job, in their families,
financial dysfunction, encounters with civil and criminal court
systems, child abuse and neglect, sexual issues, health problems and
more. The world of the addict is one in which systems self-organize and
interact negatively around seeking and using drugs. Prevention and
treatment efforts are often somewhere else, isolated from the many
different systems that comprise the complicated world of addicted
persons.
Mr. Chairman, over the last 40 years, I have viewed the substance
abuse system from several perspectives. As a State lawmaker for 10
years, as a lawyer practicing family law for 20 years, as a jail and
prison chaplain for 5 years, I worked with addicted persons and the
programs that serve them in several capacities. However, it was not
until I experienced these problems as a parent that I began to study
substance abuse enough to ask hard questions like ``why do people use
drugs when the consequences are so dire? '' Because our family had the
resources necessary to purchase the best treatment in America, our
family member did well and has gone on to enjoy a good life interrupted
only briefly by substance abuse.
But while that was happening I was serving as a jail chaplain.
There I saw countless addicts in the corrections and child welfare
systems, continuing to live out actively hopeless lives, getting either
no treatment or ineffective treatment. I began to look at the system
and to ask questions about the science and what worked and why. In some
measure, the difference between those who got help and those who did
not were resources. But there was something more troublesome.
Operational myths such as ``the addict really has to want it before
treatment will work'' effectively substituted for the responsibility of
the system to produce outcomes. Additionally, the known science was
either ignored by or not known to many of the clinicians and
policymakers whose decisions directly impacted lives.
While many operate on popular notions that addiction is the result
of character defects or bad parenting, the science teaches that
addiction is a chronic, relapsing brain disease that is characterized
by compulsive drug seeking and use, despite harmful, even catastrophic
consequences for the addict and those around him or her. An important
goal of current neurobiological research is to understand, through the
use of various scanning technologies, the neuron-pharmacological and
neuron-adaptive mechanisms within specific neuron-circuits that mediate
the transition from occasional, controlled drug use to the loss of
behavioral control over drug-seeking and drug-taking that defines
chronic addiction.
Although significant work remains to be done, we have determined
that drug dependence negatively impacts the orbito-frontal cortex
rendering the individual to be insensitive to the future consequences
of their behavior. The research has identified that part of the brain
that is critically involved in the evaluation and inhibition of
stimulus-reward associations, emotion processing, and decisionmaking
and the regulation of social behavior.
In other words, while the decision to use and abuse drugs is a
matter of choice, there comes a time when continued abuse turns on the
addiction switch in the brain. That time can vary depending on factors
ranging from genetics to environment to type of drug and frequency of
use. But it is an actual re-wiring of the brain chemistry that trips
that switch. Choice is replaced by a brain-driven compulsivity to use
drugs as the addiction literally rewires the brain and ``desensitizes''
the addict from the consequences of their behavior.
A key SAMHSA goal is to identify ways of bringing this constantly
changing and growing neurobiological knowledge to the treatment field
in the form of evidence-based practices based on individual need.
(Reprinted from ``Drugs, Brains and Behavior: The Science of
Addiction', a publication of NIDA, page 19.)
If lawmakers, policymakers, judges, social workers, therapists,
parents and others could achieve a common understanding of addiction
based on the science, we would be in a far better position to find real
solutions.
As I listen to legislative debates, read child welfare caser plans
or watch courtroom dramas involving drug use and addiction, I feel at
times as though I am watching the six blind men describe the elephant.
Everyone is using the same terms; e.g. addiction, drug abuse,
accountability, treatment. But to each speaker, those words have a
different meaning. If you ask the key players in the courtroom or many
State legislative committees where they get the information upon which
to decide matters of substance abuse, they will repeat the myths, talk
about personal life experiences or reference the popular cultural
images. Ask them sometime how much of their information actually comes
from the scientific literature and the data. In truth many of the
players in this arena continue to be guided in whole or in part by the
myths instead of the science.
I am often asked, ``What is the one thing that could be done to
solve the challenges posed by substance abuse and addiction? '' I used
to caution against looking for a ``magic bullet.'' But I have come to
believe there is one thing that would make a huge difference and that
is exchanging myth for science in therapy, in courtrooms, and in law
making. A former colleague of mine in child welfare work called this
``the need to update people's stereotypes.'' Indeed if we could update
the stereotypes related to addiction, countless lives and dollars could
be saved.
Relying on the myths that have been debunked by good science is not
simply a neutral activity. Resorting to myth when science would lead to
a better decision is harmful both in terms of wasted lives and wasted
dollars. I found a helpful, working definition for the word ``myth.''
Myth is a lesson in story or anecdotal form which has deep explanatory
or symbolic resonance for preliterate cultures, who use myths to
preserve and cherish the wisdom of their elders.''
In the context of substance abuse, the term ``preliterate'' can be
read to refer to those who have not brought recent science to their
thinking and practice. In my experience there are at least five such
lessons frequently told in story or anecdotal form which have deep
explanatory or symbolic resonance for these preliterate cultures who
have used these myths to preserve the wisdom of their elders . . .
deadly myths which are often at the heart of poor judicial and
legislative decisions and harmful therapeutic practices.
1. The myth that ``a person has to hit rock bottom before they are
ready for treatment.'' Consider for a moment what that means. It means
we watch while the addict both suffers and causes others to suffer.
Hitting rock bottom often means the loss of jobs, health, homes and
families en route to the bottom where addicts commit crimes, acts of
domestic violence and child abuse, where there are victims of their
acts and costly criminal processes or oftentimes death. Waiting for an
addict to hit rock bottom ignores the fact that there is ample science
to permit the use of early intervention. Courts can see the signs of
addiction in the persons who appear before them for minor criminal
acts. Schools, employers, the faith community and others are aware long
before the addict hits rock bottom that a person needs help. The myth
about hitting rock bottom is an excuse for doing nothing when it would
matter most.
2. The myth that a person ``really has to want treatment before it
will work'' is one that I find especially troubling. One of the most
successful interventions, particularly for chronic, serious, high risk
addicts is drug court. It is successful for a number of reasons but in
general because the drug court judge creates an environment that
coerces the addict into disrupting his or her pattern of drug use for a
long enough period of time that the addict integrates other, healthier
behaviors into his or her lifestyle, eventually replacing drug use
altogether. The research is clear that coerced treatment works. Courts
are not the only place where coerced treatment can be effective.
Employers have great capacity to force addicted employees to make hard
choices.
3. The myth that addiction can be resolved by longer and mandatory
jail sentences and other penalties such as the loss of student loans or
other government benefits. One of Wyoming's outstanding law enforcement
professionals is the Chief of Police in Casper. Tom Pagel says it well.
Chief Pagel says there are criminals who commit drug crimes for profit
and there are drug addicts who commit crimes to feed their addiction.
He cautions against treating them all the same in the criminal justice
system. When I served as a jail and prison chaplain, I grew weary of
watching the offenders and their families walk repeatedly through the
revolving jail house doors. Addicts sentenced to longer, even mandatory
minimum terms. Families left with children divided among relatives or
placed in foster care by a system that knows children who have that
experience are considerably more likely to have addiction problems
themselves. Part of effective treatment means holding addicts
accountable but there is little accountable about spending time in jail
without treatment. As the brain imaging clearly demonstrates, addicts
have a brain disease and jail sentences, regardless of length, will not
change that unless accompanied by effective treatment for the neuron-
chemically caused brain damage.
4. The myth that teaches addiction is a character defect exhibited
by those who simply refuse to exercise self control. As a young lawyer
I knew nothing about the science of addiction. Yet I often represented
clients who would be threatened by judges with the loss of their
children or with prison sentences if they took one more drink or used
drugs one more time. To me, it seemed like a no-brainer. After all who
would choose to use again when the consequences were so clearly
contrary to their own best interests. But use again most of them did.
The science explains the way in which addiction is characterized by the
compulsive need to use even though there are such dire consequences.
When you look at the brain scans of active addicts, it is clear even to
a lay person that the changes wrought by drugs to key parts of the
brain are significant. Legislative decisions and judicial practices
built around the science of addiction are far different from those
built on a belief that addicts should ``just say no.''
5. The myth that addicts should not use medications because that is
``only trading one drug for another.'' This is among the more
discouraging of all myths because I hear it often from certified,
trained therapists who would know better if they had updated their own
stereotypes for the science. Because addiction is a disease
characterized, in part, by relapse, new prescription drugs have been
developed that reduce the cravings and, therefore, the risk of relapse.
This is an important example of how an understanding of the brain
science leads to helpful therapies.
I do want to especially commend the National Institute on Drug
Abuse, HBO and the Robert Wood Johnson Foundation for their recent work
to make this important knowledge more understandable and accessible to
citizens and policymakers alike. NIDA has published a remarkable
booklet entitled ``Drugs, Brains and Behavior: The Science of
Addiction.'' It is an inviting, informative, reader friendly work that
joins the HBO/Robert Wood Johnson film documentary entitled
``ADDICTION'' as two of the most important public efforts in recent
years to change the thinking on this critical issue.
The key to developing effective public policy as well as effective
treatment and prevention is the ability to articulate the changes in
the brain's reward system is the cornerstone. I am not an expert on the
working of the brain but I do not think policymakers need to be if they
can grasp the basic concepts. I have read books and listened to
presentations that make all of this very complicated. I have also heard
lay persons describe the neurobiology of addiction in a way that I can
understand.
My first exposure to the brain science came during a
methamphetamine conference in Walla Walla, Washington. I was seated
with a group of Washington State legislators one of whom was a member
of their Appropriations Committee. We watched a presentation that
included slides of brain scans showing the progression from non-use to
abuse to addiction and on to treatment and recovery. Especially
informative are the brain scans of those persons who are fully and
actively addicted. Even a lay person can see that in key parts of the
brain where we make decisions and exercise judgment, the lights are
off. Yet this is the picture of the brain of those who enter treatment.
The Washington legislator looked at that slide and said, ``Ah ha . . .
so that's why our 28-day programs don't work! ''
(Reprinted from ``Drugs, Brains and Behavior: The Science of
Addiction', a publication of NIDA, page 25. Attachment B is a larger
image of this brain scan.)
The slide supports other conclusions as well such as why typical
probation programs do not work as well as fully supervised drug courts
and why the 15/22 rule of the Adoption and Safe Families Act can be an
effective tool in coercing addicted parents into treatment and recovery
if better understood by social workers and judges.
It is helpful of course that scientists and researchers have come
to understand the way in which increasing, continuous drug use paves
the way in the brain for addiction by altering the reward system but
what is critical is that lawmakers, judges, social workers and
probation officers have a working knowledge of this information.
Knowing that chronic drug use lowers the threshold of the brain's
reward system and that withdrawal raises that threshold is information
that should be used to design probation programs and clinical
practices.
I would encourage Members of Congress to consider using the
reauthorization of SAMHSA as an opportunity to explore strategies for
expanding the knowledge of addiction-related brain neuron-chemistry to
those on the front lines, e.g. judges, social workers, corrections
officials, therapeutic community and others working directly with
addicts and their families. Unless those in the trenches are provided a
basis for understanding this science, it will be many more decades and
countless millions of lost lives and dollars before the science is
integrated enough in the actual work of these systems to make a
difference.
In fact, SAMHSA already has two important structures designed to
infuse the latest science into our service systems: the Addiction
Technology Transfer Centers (ATTCs) and Centers for the Application of
Prevention Technologies (CAPTs). These regional entities, located
throughout the United States, work to translate the latest substance
abuse science in order to create learning opportunities to improve the
practices of States, counselors, prevention professionals and community
coalition members. The CAPTs and ATTCs sponsor regional conferences,
workshops, and training of the trainer events regarding evidence-based
practices, provide customized technical assistance, develop training
curricula and products, and create online courses and classes.
Unfortunately, the ATTC's and CAPTs are under-funded, with the proposed
fiscal year 2008 budget seeking to eliminate funding for the CAPTs
altogether.
These strategies should be pursued even as additional funding is
provided to expand the brain and genetics research related to addiction
disorders. But it is not enough that a select group of scientists are
aware of the genetic impacts on brain development leading to addiction.
The development of the science must be accompanied by a diffusion of
the knowledge so that it can replace the myths that too often drive
therapeutic practices and public policy choices. NIDA and other
researchers knowing that brain development makes some folks more
susceptible to addiction than others and that the reward circuitry of
the brain may control one's reaction to chronic drug use . . . is
important but it is not sufficient. It is when I start to hear
discussions of the way in which chronic drug use changes the brain in
the coffee shops around rural Wyoming, that I will know we have a
winning strategy.
SYSTEMS IMPROVEMENT THROUGH FLEXIBLE FUNDING
Providing effective treatment and making good public policy also
requires a recognition of the fact that drug use is generally
experienced as a part of a larger universe of social problems. Drug use
is usually accompanied by school failure, mental health issues, family
dysfunction, domestic violence, problems with health, housing, jobs,
child behavior and more.
People who chronically use drugs en route to addiction are
frequently clients of the correctional, public welfare or child welfare
systems. They come to the early attention of lower level criminal
courts. Some are chronically homeless or out of work. As a result,
addicts and chronic drug abusers fill the ranks of the clients of a
variety of public service systems. Therefore, neither prevention nor
treatment should be an endeavor isolated to a group of the usual
suspects.
SAMHSA has been especially cognizant of the systems issue.
Sponsoring training opportunities such as the June 2007 conference
entitled ``Achieving Common Goals'' bringing together relevant agencies
to discuss innovative ways to address common client problems is an
example of their responsiveness.
It is equally true that the problems presented by drug abuse are
different in different communities. For example, the 2005 Youth Risk
Behavior Survey concluded that while 8.5 percent of high school
students had tried methamphetamine during their lifetime, 77 percent
had already used alcohol. A 2005 survey of law enforcement officials
disclosed that in 10 of Wyoming's 23 counties, 59 percent of all
arrests involved alcohol.
A number of Wyoming communities are experiencing high rates of meth
use. Even more have continued to experience high rates of alcohol
abuse. In others, there is a growing concern about prescription drugs.
States and communities need flexible funding streams that allow them to
address their unique substance abuse challenges.
Virtually all of the ``systems'' necessary to comprehensively treat
and prevent substance abuse are local systems. They include the local
court system, a local public and private treatment provider system,
local child welfare system, local schools, public health, housing,
business and faith communities and family systems. Systems improvement
is vital to positive outcomes for addicted persons. While the Federal
and State governments can encourage local systems improvement, it will
actually happen only through the empowerment of local community
leadership.
Accordingly, my State and others would benefit from a flexible
funding approach giving States room to navigate through their unique
drug problems, their unique political and economic systems, their
unique geography, and their unique set of resources.
Wyoming's drug court program is an example of the sort of
flexibility that allows funds to be used creatively in different
communities to achieve broad common goals. The State legislature has
provided funding within a framework that requires local drug courts to
use the 10 components of an effective drug court. Beyond that, local
communities and courts may decide how to use the State funding to meet
local needs. In some communities there is a priority for adult felony
courts, in others the need is for juvenile courts, or family treatment
of DUI courts. A critical ingredient of the success has been the fact
that the legislature has provided for coordination of the program
through the office of the single State authority.
Another example of our approach to systems improvement coupled with
flexibility is our new contracts with substance abuse providers. Each
public treatment provider is now being asked to enter into a memorandum
of understanding with their local child welfare, public welfare and
corrections systems to create a shared set of goals and practices to
assure effective treatment of common clients across their systems. At
the end of this process, we expect there will effectively be a single
system, single case plan, and single set of shared values that persons
who need services will experience when they walk through anyone of
those doors with a mental health or substance abuse problem.
This flexibility should be applied to the Substance Abuse
Prevention and Treatment Block Grant which has been an effective and
efficient funding stream to support vital services to Wyoming citizens.
The drug problem is much more a community problem than a national
problem. No one has more at stake in meeting the challenge than the
neighbors of those who are addicted and their families. No one has more
to lose or more to gain than the folks who live in the community or the
neighborhood where drug use causes chaos. Given flexibility, these
community leaders will make the right choices.
ACCOUNTABILITY
I am comfortable that I speak for all State administrators when I
say we are as concerned as any Member of Congress about the
accountability of all of us to produce good outcomes.
Wyoming has experienced technical problems in getting its system on
line but we are there now and so is nearly every other State. I believe
the States, working with SAMHSA and NASADAD, have made excellent
progress on the establishment of the National Outcome Measures. I
especially want to recognize the hard work of our Governor and the
Wyoming Legislature in demanding outcome data as they have supported
greater investments in the treatment system.
NASADAD can tell you more about the other States but in Wyoming the
legislature has enacted statutory requirements that the Department of
Health use outcome measures for treatment programs. We are using the
National Outcome Measures (NOMS). The legislature further enacted a
measure requiring that I, as the SSA, withhold funds from all provider
contracts until and unless we have a written agreement on measuring
outcomes. Finally, the Governor and the legislature have demanded that
our system measure outcome data across agency systems in order to
broadly assess outcomes on a longitudinal basis.
The provider community has stepped up and agreed to measure
outcomes based on the NOMS. Our contracts require each provider to
report NOMS quarterly on all clients. As this data accumulates, we will
be in a better position to improve services, identify best practices in
our rural State and to inform policymakers as they grapple with funding
and legislative decisions.
Wyoming and other States are fully committed to NOMS reporting. Yet
I do want to express concern about a fiscal year 2008 budget proposal
to penalize 5 percent of the Substance Abuse Prevention and Treatment
Block Grant for those States that are unable to report NOMS by the end
of this year. If we are unable to do so, and I do not currently expect
that to be the case, it will not be because of any reluctance to do so
on the part of the State agency or the providers. It would result from
gaps in our data infrastructure and the ongoing technical challenges of
effectively integrating data collection and reporting technologies.
I agree with NASADAD that providing positive incentives is better
and more effective public policy than imposing block grant reductions
that will directly impact our ability to provide necessary treatment
and prevention services to citizens.
Additionally, we are exploring the use of a process similar to the
Children and Family Services Reviews under the Adoption and Safe
Families Act. Under that process every State child welfare system is
evaluated using a common tool to determine the extent to which the
States are meeting the safety, well-being and permanency needs of
children in State care.
One of the tools used to improve performance of the child welfare
system is the Citizen Review Panel enabling consumers and other
citizens, along with child welfare professionals to actually
participate in case reviews in order to have the sort of transparency
that actually improves systems. We are considering a process that would
mimic that same consumer centered process in order to review treatment
practices for the purpose of enhancing accountability by making the
substance abuse treatment system less mysterious and more transparent.
CONCLUSION
Thank you for this opportunity to appear before your committee and
to offer my views on the important work before you. Please know that
the Office of Wyoming Governor Dave Freudenthal and the Wyoming
Department of Health welcomes any opportunity to be of assistance in
your work. Additionally, NASADAD stands ready to support and work with
this committee on issues related to substance abuse and mental health--
including SAMHSA reauthorization. NASADAD's expertise and commitment to
improve service delivery represents a wonderful resource.
Attachment A
Wyoming Substance Abuse Prevention and Treatment Block Grant Awards
----------------------------------------------------------------------------------------------------------------
SAPT Award State Total
[in Funding [in Funding [in SAPT State
Federal Year millions State Year millions millions Funding [in Funding [in
of dollars] of dollars] of dollars] percent] percent]
----------------------------------------------------------------------------------------------------------------
FY 2007............................ $3,305,977 SFY-2008 $30,965,682 $34,271,659 9.65 90.35
FY 2006............................ 3,299,412 SFY-2007 23,293,913 26,593,325 12.41 87.59
FY 2005............................ 3,333,448 SFY-2006 19,753,778 23,087,226 14.44 85.56
FY 2004............................ 3,333,335 SFY-2005 15,466,986 18,800,321 17.73 82.27
FY 2003............................ 3,193,795 SFY-2004 15,393,328 18,587,123 17.18 82.82
FY 2002............................ 3,048,693 SFY-2003 15,209,480 18,258,173 16.70 83.30
FY 2001............................ 2,751,260 SFY-2002 8,303,744 11,055,004 24.89 75.11
FY 2000............................ 2,452,377 SFY-2001 4,755,678 7,208,055 34.02 65.98
----------------------------------------------------------------------------------------------------------------
Attachment B
Senator Reed. Thank you very much, Mr. McDaniel.
Mr. Allebaugh.
STATEMENT OF TERRY LEE ALLEBAUGH, EXECUTIVE DIRECTOR, HOUSING
FOR NEW HOPE, INC., DURHAM, NORTH CAROLINA
Mr. Allebaugh. Thank you, Senator Reed.
My name is Terry Allebaugh and I'm the founding director of
Housing for New Hope, a nonprofit organization rendering
services and building housing for the homeless in Durham, North
Carolina.
I'm joined here this morning by Alfonso Williams, a
formerly homeless man, who's now serving as our Program
Director for one of our transitional housing programs.
Two years ago, my organization began outreaching through
our P.A.T.H. program to two valuable men who are living in
Durham. The men were living in a makeshift tent in a narrow
strip of woods between Main Street and the railroad tracks near
a thriving area of Durham called Lane Street. Being also near
Duke University, the area provided a fertile ground for the
men's panhandling efforts.
We suspected immediately upon outreach, that one man, who
was called ``Concrete'' because of the seemingly resilience to
the harshness of living year round outside, was schizophrenic.
We also believed that the other, called White Mike for what I
think is probably obvious reasons, suffered from--was
clinically depressed. Both men were self-medicating with
alcohol, both men had given up hope that anything else was
possible for them in their lives.
For our first year, we visited and talked with them, we
took them sleeping bags, we'd take them occasional food, we'd
take the toiletries, and they graciously accepted our gifts,
and they would also continuously decline our engagement to see
service providers and to go into housing. They had given up
hope that anything else could be possible for them.
The business owners in the community around begrudgingly
accepted their presence and said pretty much, ``Well, you know
what? Some people just choose to be homeless. What can you do?
''
Then White Mike's health status grew worse as his exposure
to all the elements continued and he was transported twice by a
rescue squad to the emergency room where he was hospitalized
for internal bleeding. Soon Concrete moved out of the tent and
he was found sleeping at night, soon afterwards, behind the
bike rack at Kinko's.
Unfortunately, these stories of Concrete and Mike are not
unique. They are only two of 744,313 in our country each night
who are homeless. They are only two of the 11,165 people in
North Carolina, and only two of the 539 counted in Durham. Both
the despairing homeless and the confused citizenry are looking
to us here in this room for leadership, commitment, and
increased funding to improve services.
Through our work, Housing for New Hope has come to believe
one thing. And if you remember nothing else from my testimony,
I hope it's this. No one, nobody, not at any time, chooses to
be homeless. There are plenty of people, however, that have
settled for homelessness. They have settled for that because
they have given up hope that those services which will help
them best, that housing which they can afford and is tailored
to their needs, will provide a solution to their homelessness.
Piecemeal services, congregate shelters, and spare change do
not lead to transforming these systems of care.
Homeless people, especially those with disabling
conditions, need real services that are comprehensive. They
need real homes where their name is on a lease and they have
rights and responsibilities. They need real change, not spare
change.
Data collected nationwide reveals that 23 percent of our
homeless in this country are chronically so, meaning that
they've been out there for a long time. They are there because
they are poor, and they lack the financial access to housing
and services. The longer they remain homeless, the more
debilitating their chronic conditions become. Additionally, the
more expensive their treatment and response to them becomes for
our systems.
As you probably know, many of the chronically homeless, as
with these gentlemen, seek healthcare from emergency rooms,
where they're transported by a rescue squad. They're
temporarily housed in our jails and prisons, and they seek
periodic help for mental and primary health in hospitals for
chronic health conditions. We can no longer fool ourselves that
by providing minimal support to this population, that we're
saving our tax dollars.
Housing and Urban Development has been stepping up to the
plate in the area of permanent housing. They are providing
resources and require that folks build permanent housing if
they're going to receive HUD funding.
I'm here today mainly to encourage you all to include a
part of a bill that's called SELHA, which is Services to End
Long-Term Homelessness Act. It was introduced by our North
Carolina Senator Burr and co-sponsored by Senator Reed, into
the SAMHSA funding. Put SELHA in SAMHSA and this will make a
difference for us, where we have housing, we have P.A.T.H.
programs, but we do not have the ongoing clinical support the
people need in our communities.
We did visit Mike when he was in the hospital--just a few
minutes, and I'll finish this part of the story, Senator Reed,
if that's okay--and he did decide to go into treatment, and he
did decide to enter our transitional housing program and he's
now living in one of our efficiency apartments where he's
working at his job. He's actually started doing outreach on the
P.A.T.H. team. Concrete committed himself to a hospital, mental
health hospital for 7 days. He was released with 7 days of
medication, given the name of a service provider. He
disappeared for a while and he has now reappeared, sleeping
behind the bike rack at Kinko's. I think we can all work
together to do better for Concrete and also to make sure we
prevent, so that Mike and Concrete and others like him around
the country are not left out there.
Thank you.
[The prepared statement of Mr. Allebaugh follows:]
Prepared Statement of Terry Allebaugh
My name is Terry Allebaugh and I am the founding director of
Housing for New Hope, a 15-year-old nonprofit organization rendering
services and building housing for the homeless in Durham, North
Carolina. At Housing for New Hope, we work to prevent and end
homelessness one valuable person at a time.
Two years ago, we began outreaching to two such valuable men
through our P.A.T.H. program (Projects for Assistance in Transition
from Homelessness, administered by SAMHSA). The men were living in a
makeshift tent in a narrow strip of woods between Main Street and the
railroad tracks near a thriving area of Durham, called 9th Street.
Being also near Duke University, the area provided a fertile ground for
the duo's panhandling endeavors. We suspected immediately, and it was
later confirmed by psychological testing that ``Concrete'', so named
because of his seeming resilience to the harshness of year-round street
living, suffered from schizophrenia, and ``White Mike,'' so named for
obvious reasons, was clinically depressed. Neither man was receiving
treatment and both were self-medicating with alcohol. Both men had
given up hope that there could be something different in their lives.
For over a year we visited and talked with them at their tent or on
9th Street. They always thanked us for visiting and graciously received
our periodic gifts of sleeping bags, blankets, toiletries, and food.
They also repeatedly declined our offers to connect them to services,
housing, and hope for tomorrow. The business owners and their patrons
begrudgingly accepted them, with a few exceptions, and most everybody
seemed resigned to the fact that well, ``some folks just choose to be
homeless.''
Then ``White Mike's'' health status grew worse as his exposure to
all the elements continued, and twice he was transported via rescue
squad to the emergency room, and then hospitalized for internal
bleeding. Soon, ``Concrete'' moved out of the tent and was found
sleeping at night behind the bicycle racks outside Kinko's on 9th
Street.
Unfortunately, the stories of Mike and Concrete are not unique.
They are only two of the 744,313 homeless people in the country on
any given night who are looking to us, here in this room, for real
change by ensuring access to mental health services and affordable
housing. They are two of the 11,165 on a given night in North Carolina,
and two of the 539 counted in Durham. Both the despairing homeless and
the confused citizenry are looking to us for leadership, commitment,
and increased funding leading to improved services.
Through our work, Housing for New Hope has come to believe that
nobody chooses to be homeless. Some people settle for homelessness
because they have given up hope that anything else is possible.
Piecemeal services, congregate shelters, and spare change do not lead
to transformative systems of care. Homeless people, especially those
with disabling conditions such as mental illness, substance addiction,
and poor physical health need real services that are comprehensive.
They need real homes where they are leaseholders with rights and
responsibilities. They need real change, not spare change handed out by
those more privileged who themselves are looking for a temporary fix
for their guilty feelings.
Data collected nationwide reveals that 23 percent of the homeless
population are chronically homeless, meaning they have been living on
the streets with disabling conditions for long periods of time. They
are there because they are poor and lack access to needed health care
systems and affordable housing. The longer they remain homeless, the
more chronic and debilitating their health conditions become and the
more expensive our piecemeal, temporary, and spare change services cost
us. Many of the chronically homeless receive their primary health care
in the emergency rooms and are transported there by a rescue squad.
They are housed periodically in jails and prisons, transported by law
enforcement officers, and adjudicated by the courts and court-appointed
attorneys. They are frequent, short-term visitors to primary and mental
health hospitals with high per diem rates for the doctors, nurses, and
tests.
We can no longer fool ourselves that we are being frugal and
prudent with our tax dollars by only giving minimal attention to the
chronically homeless population.
Housing and Urban Development (HUD) has been stepping up to the
plate in the area of permanent housing and chronic homelessness by
requiring that at least 30 percent of all funds awarded nationwide
through the Supportive Housing Program be for the creation and
provision of permanent housing. Additionally, HUD makes a bonus award
available for each community that targets permanent housing projects
for the chronically homeless. My own organization, Housing for New
Hope, has 40 units of permanent housing partially funded by three HUD
grants, and we have just been awarded a capital grant for the
construction of another 10 unit apartment building to house the
chronically homeless.
However, HUD has made clear that they intend to fund what they do
best, namely housing, and that we cannot look to them for the provision
of service dollars. We need SAMSHA to step up to the plate and provide
the core service dollars that will make the housing dollars more
effective in our communities.
In a report produced by the U.S. Department of Health and Human
Services entitled, ``Ending Chronic Homelessness: Strategies for
Action,'' the authors concluded that no mainstream program is
comprehensive enough to adequately serve chronically homeless people.
Therefore, agency budgets need to target dollars to this population. In
a bill called Services for Ending Long-term Homelessness Act (SELHA)
that was introduced and championed by our North Carolina Senator
Richard Burr, and was co-sponsored by Senator Jack Reed and others,
there is a detailed plan for needed services for this population that
can be coordinated with other systems that are delivering housing,
jobs, and primary health. The bill provides mental health and substance
abuse treatment as well as health education and recovery activities. I
strongly encourage you to increase funding within the current homeless
programs by $80 million and include the goals and funding for SELHA in
the reauthorization of SAMHSA.
It's easy to remember: put SELHA in SAMHSA.
I can tell you unequivocally that the main ingredient currently
missing in our work to end and prevent homelessness in Durham for the
chronically homeless is mental health and substance abuse services. Our
P.A.T.H. program is doing remarkably well to outreach and engage, and
is making some incredible things happen. With the help of HUD and our
city and State governments, we are putting housing on the ground.
However, without the presence of clinical teams who are trained,
committed, and dedicated to the issues confronted by the chronically
homeless, we, like many others around the country, are part of the
piecemeal, spare change system of care.
Our Local Management Entity, The Durham Center, and our State level
Department of Health and Human Services are working hard in a tough
environment to squeeze out a few dollars to target resources in this
area. However, they need SAMHSA's help in order to make real and
substantial change that will create the necessary infrastructure and
coordination of social services.
There is an amazing thing happening in our country right now.
Business leaders and folks from congregations, people in nonprofit and
government agencies are working together like never before to implement
strategies that will end homelessness as a statistical reality in our
country. Major cities are reporting significant decreases in the number
of homeless people living on the street. But there are many miles to
travel before we reach our goal.
Along the way, we will keep reaching for our goal one valuable
person at a time.
Our team visited Mike while he was hospitalized, and he decided to
seek substance abuse treatment. Then, he decided to come into one of
our transitional housing programs. Then he moved into one of our
efficiency apartments where he pays his rent, works his job, and has
started working on our P.A.T.H. outreach team as a peer specialist.
What a distance he has traveled--from living in the woods with no
access to the mental health care that he needed, to living in his own
place, helping others access the services they need to regain their
hope for a better life.
Concrete recently committed himself to mental health
hospitalization. He was there for a few weeks, given a 7-day supply of
medication, an outpatient referral slip to a mental health provider,
and released. He disappeared, but recently reappeared on 9th Street. He
has run out of medication, has never seen the provider, is back to
being mistrustful of help, and is sleeping behind the bike rack.
I don't think you, or I, are comfortable leaving him out there.
We know what it will take to bring ``Concrete'' and others like him
into housing and services. We know what it will take to prevent Mike
and Concrete from being out there all those years. I urge you to
include SELHA within the SAMSHA reauthorization to allow us to provide
the services that will give hope, opportunity and stability to our
citizens who have so little.
Thank you.
Senator Reed. Thank you very much, I want to thank the
panel for the excellent testimony, and let me say how pleased I
am to be working with Senator Burr on this issue of providing
services to the homeless. I think Rich and I share the same
sense of frustration, that we spend money on housing, but
without these services, it seems to be not adequately utilized.
Might you want to comment on that, Mr. Allebaugh?
Mr. Allebaugh. Well, I think we are fortunate that HUD has
stepped up and is providing some funding in this area, but if
people don't receive the supportive services that they need for
recovery, as you've heard many of the other people testify here
today, the housing tends to be short-lived. And so, we have
found that true in Durham, and I'm sure they're--and from what
I hear they're finding out around the country.
So, it's an important effort to complement, where there's
already some initiative happening.
Senator Reed. I think your testimony makes the point, this
is not just a ``big city'' phenomenon, this is everywhere in
the country, and you also, I think, make an excellent point
that if you look at the cost of homelessness, emergency room
treatment, incarceration, it far exceeds the cost of treatment,
we just have to make sure we get the numbers right, and do it
right.
Mr. Allebaugh. Well, as Senator Burr mentioned in his
opening statements, Portland has done enough now that they have
some comparative costs that show that they're saving about
$16,000 per person, per year, providing this type of housing,
instead of allowing people to continue to cycle through our
various systems.
Senator Reed. Just one other question, Mr. Allebaugh, and
again, let me commend you for your great work. What proportion
of your population are veterans who served the country, and now
are on the streets?
Mr. Allebaugh. We typically run about 15 to 20 percent of
our population in Durham, are homeless Veterans.
Senator Reed. And that is a sad commentary for individuals
who have served their country.
Mr. Allebaugh. It is, and we try to take advantage of every
opportunity of funding that targets that population.
Senator Reed. Thanks, so much.
Lisa, let me thank you for your excellent testimony, and
for the courageous example that you've shown, not only in
moving forward in your life, but helping so many others. Could
you elaborate on what you found most helpful in your recovery,
please?
Ms. Halpern. I would say accommodations and high
expectations, the two together. In my return to graduate
school, I received accommodations to help me further my
education. For example, extra time on tests, and being in a
different, quiet room during tests, because the sound of a
pencil is too much stimuli for me to listen to.
And the other critical piece to my recovery, and my ongoing
recovery has been the high expectations of my family, and the
high expectations of my doctor. Before I could read and write,
my doctor believed that I was going back to Harvard. And it was
just a simple question of how do we get from A to B? And, my
family's been a terrific support, as well, so it's--I've been
very fortunate, in some ways, I've been blessed, so----
Senator Reed. Well, one of the things you've just mentioned
is the flexibility of being able to take time off and having a
support system, but I would imagine that's not the case in all
of the people you work with?
Ms. Halpern. Right.
Senator Reed. And, that's something we should probably
think about in terms of how we structure our programs, is there
any advice you might give us?
Ms. Halpern. The program that I work for in Dorchester, the
population is men with substance abuse and mental health
concerns and worries, and that population is different in its
needs and abilities and aptitudes than what another population
might be, so I think what I've learned from working on the
P.A.T.H. team at Westbridge is a strength-based approach, where
you meet everyone where they are, and that's what I try to do
when I'm on the peer counseling side of things, is to meet
people where they are, and accentuate their strengths.
Senator Reed. Well, thank you very much, Lisa, again for
your great testimony and for your great work.
Mr. McDaniel, you have an array of perspectives--you're a
lawyer, and a minister and an administrator, and thank you for
bringing along the scientific evidence that should be
underlying all of our decisions.
I wonder if you might comment on, SAMHSA basically has two
block grant streams, the substance abuse and the mental health,
and everyone has concluded that it has to be coordinated. From
a State level, do you have any specific advice how we might do
that, and in addition, coordinate with the larger medical
community?
Mr. Daniel. Mr. Chairman, in particular, the latter part of
your question is, I think, very important. Because I think one
of the real issues in mental health and substance abuse is the
extent to which mental health and substance abuse services have
been isolated from primary care, and even to the extent of
those services taking part in another part of time, and we see
that impacting the workforce as well as front-line services.
Mr. Chairman, I know there's been some discussion about
merging the two block grants, I guess I would conclude that
that's not a particularly important thing to do. I think in
terms of what happens on the ground, in the States, when the
block grants flow through to services, that the States are
probably the best place to figure out how to funnel those
moneys together.
In Wyoming, we've worked with SAMHSA for the last couple of
years to assess our services for the co-occurring population,
for example, and how to merge services and funding streams in
order to accomplish that. And, I think at the State level,
people can generally figure out how to do that.
In 1999, the then-Governor of Wyoming chose to divide
substance abuse from mental health, because substance abuse
needed a greater priority. This Governor, this year, has chosen
to re-integrate mental health and substance abuse
administratively, in order to eliminate some of the silos that
had grown up around the separation of the two programs. So, I
think, at the State level, and even more particularly, at the
community level, those who are involved in delivering the
services--practitioners as well as policymakers--can figure out
how to integrate those funding streams, so long as the Federal
legislation is flexible enough to allow them to do that.
Senator Reed. And just a brief comment, if you might, in
terms of outcome measurement. Because, you're down there where
the outcomes have to be measured.
Mr. Daniel. Well, Mr. Chairman, it's a critical issue with
us. I spent the last 4 years as the head of the State Child
Welfare Agency where we experienced, as a result of the
Adoption and Safe Families Act, and the Citizen and Family
Reviews, that experience of having a Federal review drive us
toward a strategy where data became the way in which we changed
services.
I believe we'll accomplish the same thing in substance
abuse and mental health working with SAMHSA and NASADAD and
others on the National Outcome Measures. When communities see
the data, when providers see their outcome data, they'll figure
out the strategies that need to work.
I don't believe that any State is dragging its feet on
National Outcome Measures, I believe--I know there's a budget
proposal that would penalize the block grant 5 percent for
those States who don't measure outcomes, I would urge that that
not happen, because I--to the extent that there are problems,
from my experience, there really are problems in information
technology and trying to figure out how to make the systems
compatible with the myriad of provider systems that are used to
report--that's the struggle we've had in Wyoming. Neither the
providers, nor the State policymakers are dragging their feet
on reporting the measures, they want that done, it's a
significant strategy for improving services.
Senator Reed. Thank you very much, thank you all.
Senator Burr.
Senator Burr. Thank you, Mr. Chairman.
Lisa, thank you for that very personal testimony, and on
behalf of the organization as well.
Roger, it's not easy to talk about personal experiences,
especially when they affect your family, and we appreciate you
doing that. And, I'm particularly thankful to you for
continuing to mention outcome, because in this town, we don't
hear ``outcome'' we hear ``process'' and that's disturbing to
me.
Terry, thank you for Mike's and Concrete's story. And, you
know, the great thing is, in Durham, North Carolina, you've got
a long list of names of lives that you've affected. Some of
them, not with the word permanently. And that's the tough
thing. That's the gap that, I know you know is out there. And,
my question to you is quite simple--can the word ``permanent''
really go in front of this population of homeless,
homelessness, without those services wrapped around it?
Mr. Allebaugh. I think it's real important that we are
focusing on permanent housing, it is an outcome that we can
measure, as we've heard here today, and I think that the
provision of permanent housing provides a good base for someone
to make changes in their lives as we all use our homes as a
place where we attain our self-esteem, our sense of self-worth,
our sense of purpose. With the chronically homeless, when they
have a disabling condition, permanent housing, to have them in
there is the start. It gives them a place where they know
they're going to be the next day and the next day, it
delineates rights and responsibilities that they have as a
leaseholder there.
However, they can not sustain that unless there's support
for them in their ongoing process of recovery. Whether that's
from substance abuse, mental illness, or recovery from physical
health, so unless that complements that housing, we will find
that our numbers, as they go down, they'll go back up. And so,
we cannot fool ourselves into thinking that any one piece of
that is enough.
It is important that the services be distinct from the
housing. They're there as leaseholders, they're there in
permanent housing, and our service provision needs to be
enticing, engaging, assertive--it doesn't need to be required,
if you don't attend a meeting, you don't get put out of your
housing, that's not a good practice, it's a bad practice.
But, it is important that we have services that are
constantly engaging. And what I have found that people who are
homeless need above everything else, is a chance to participate
in a community, to see their individual lives as part of the
larger whole, and to have the ability to contribute back to
that. And, I think permanent housing, with supportive services,
gives the individuals that opportunity, and thus makes our
communities better places to live.
Senator Burr. Well, I think it's safe to say that Jack and
I understand the cost argument that you made, which is very
compelling. Unfortunately, in Washington, there is no dynamic
scoring, so we don't get this benefit of being able to go out
and prove how much money we save, by going out and spending
money, which is insane. And, I'm proud to say that many members
on this committee get it, and they don't let that be a
limitation. So, I think--my hope is that we will do some things
out of the box, we will find some ways to get new moneys so
that services can be provided, and you can have more people
with ``permanent'' in front of it.
And Roger, you highlighted the importance of basing
substance abuse treatment on brain science research evidence.
Let me ask you, specifically--how can SAMHSA coordinate, or how
can SAMHSA contribute to developing and disseminating this
evidence?
Mr. Daniel. Mr. Chairman, Senator Burr, thank you for that
question.
I think SAMHSA is doing a lot of that through the Addiction
Technology Transfer Centers, and I think additional funding,
perhaps, for that process would be very helpful. But, I think
there are other strategies, as well, that are probably outside
of SAMHSA.
In our State and many other States, the key people that
make this work, are usually judges. Many times, lower-level
judges. In the context of drug courts, and Wyoming now has 25
very successful drug courts--you have teams of people,
including judges, who exercise the judicial leadership in
bringing together the prosecutors and the defense bar and the
treatment community and housing and education and the others,
around the science of addiction. And their outcomes are so
significantly better than what occurs in other contexts in the
court room, where particularly in the lower-level courts, drug
offenders are usually, initially found,--that--I think the
lesson drawn from the drug court experience would be very
important to the committee. It's a part of that whole process
thing where unless the addiction is treated with a
comprehensive approach, then what will happen is that those
offenders who are in municipal court, graduate to the District
Court and the Federal court on more serious charges.
And so, earlier interventions are important, but somehow, I
think, we have to do better in both the medical schools and the
law schools in making that a part of the curriculum, so that
lawyers who graduate from law school, and doctors coming out of
medical schools, have that integrated in the view of the people
that they will help.
Senator Burr. Good point.
Final question, Lisa, what service, education, programs are
needed for us to make sure that individuals with a mental
illness actually take medication? The medications, as you know,
change significantly, almost yearly. And one of the biggest
challenges is, those individuals that are afflicted, many
times, go off their medications. Then you start back at square
one. Is there anything that we can do, that we're not doing
today, that would help alleviate that challenge?
Ms. Halpern. Tough question, Senator Burr.
I would have to say that the most important aspect of
trying to encourage one to take medication would be an alliance
between the medical provider--whether it's a psychiatrist, or a
therapist, or whoever the key provider is--there needs to be an
alliance between the individual with illness, and the doctor.
And that alliance is sort of a conundrum--how do you build
trust with one who does not trust? With a lot of these
illnesses, with psychosis, with schizophrenia, there's a basis
for a distrust. So, trust has to be built up in order to get an
individual to take medication. And sometimes that takes time,
it takes time that emergency room doctors may not have the
luxury of having. But, if possible, sometimes just having time
to form a relationship between patient and doctor is, I think,
the most secure way to our indirectly getting to the endpoint
of someone wanting to take their medication, because it's the
combination of pills that makes them feel well.
Senator Burr. Well, I thank you for that.
And, Mr. Chairman, I think it's something that we already
know, is that many Americans don't have a relationship with a
healthcare professional, at all. And, you're right, the
emergency room is not the model of primary care delivery, it's
a model of trauma, and it has now really become a facility that
provides every type of health care imaginable. And some, they
do well, and some they don't do very well at all. But, it sort
of puts us back in the mode that we have a health care system
that's designed only to trigger when you get sick. It's not
triggered to keep people well, it's not triggered to do
prevention. And the only way that we will change it is if we
start up here, restructuring the health care model in this
country, so that it promotes wellness, it promotes prevention,
and part of that is paying for wellness and prevention and
establishing a relationship between a patient, and a healthcare
professional, so that they begin to build that trust with
somebody in the healthcare community. So, we thank you for
that.
Thank you, Mr. Chairman.
Senator Reed. Thank you, Senator Burr.
I want to thank the witnesses, all of the witnesses, for an
excellent hearing. It strikes me that the themes that
Congressman Kennedy outlined initially, evidence-based
programs, and Mr. McDaniel has pointed out very graphically how
important these programs are, and then coordination, between
substance abuse, mental health, the larger medical community,
the legal system, the housing community--we have to enhance
that coordination, and that means information systems that are
reliable, outcomes that we can measure. It means enhanced
training for many participants, both in the legal profession,
the medical profession, the substance abuse profession as well
as the mental health profession. And, the goal is to provide
the programs that will provide adequate treatment, and also, we
hope, prevention.
So, I thank you, we've learned a lot, I have, and I thank
you all. The committee record will be open for 14 days to allow
others who wish to submit written statements to do so, and also
to allow my colleagues on the committee who might have follow
up questions to address them to the witnesses.
Thank you very much, and the hearing stands adjourned.
[Additional material follows.]
ADDITIONAL MATERIAL
Response to Questions of Senator Enzi by Lisa Halpern
Question 1. In your testimony you said that the mental health care
system is ``in trouble.'' What specifically is broken with the system?
Is it lack of funding, to many hurdles, too much bureaucracy, etc.? Why
are so many States doing so poorly?
Answer 1. As both the 2003 White House New Freedom Initiative
Mental Health Commission report and NAMI's 2006 Grading the States
report found, the Nation's public mental health system is plagued by
fragmentation and lack of coordination. While a lack of available
resources is a problem in many States, in many others it is failure to
properly invest in evidence-based treatment models that maximize
opportunities for recovery. The reality is that the array of services
that adults with mental illness need--medication, case management,
housing, income supports, employment, etc.--are spread across multiple
service systems, with very little coordination.
The poor performance of State systems--27 States in the NAMI report
received a grade of either D or F--is based largely on the absence of
comprehensive supports and services that are oriented toward recovery.
At the same time, there are many pockets of innovation across the
country, including supportive housing, jail diversion, integrated
treatment for co-occurring mental illness and substance abuse, and
elimination of restraint and seclusion in inpatient facilities. SAMHSA
reauthorization affords us an important opportunity to prod States
toward investment in these innovative approaches.
Question 2. Ms. Halpern, you were able to access and receive
services and supports. Why do so many other Americans have a difficult
time receiving similar services?
Answer 2. Unfortunately, effective supports and services such as
Assertive Community Treatment (ACT) are simply not available across the
country. In order to effectively engage people with mental illness in
treatment it often takes a willingness to meet people on their terms,
where they live. This includes outreach and engagement on the streets,
in homeless shelters, board and care homes, etc. Involvement of peer
support and peer outreach is critical to making this kind of assertive
engagement effective. We simply cannot allow community-based providers
such as CMHCs and local public mental health service agencies to sit
back and wait for consumers to voluntarily seek out treatment. Finally,
we cannot lose sight of the fact that social withdrawal and social
isolation are part of the very constellation of ``negative'' symptoms
associated with an illness such as schizophrenia. These negative
symptoms can have a profound effect on the ability of consumers to seek
treatment on their own. This requires us to constantly be developing
creative approaches to reach the most disabled and isolated people
living with mental illness.
Response to Questions of Senator Enzi by Rodger McDaniel
Question 1. In your oral and written testimony you encourage
flexibility in the approach to funding effective treatment and
prevention at the local level. One of the issues we are discussing in
reauthorization of SAMHSA is the elimination of ``silos'' of service in
exchange for more flexibility. Please explain in more detail what the
optimum roles are for the Federal Government versus the local
government in prevention and treatment from your experience in Wyoming.
Answer 1. In my view, the Federal Government can continue to play a
very useful leadership role in steering the service system toward
broad, comprehensive goals. Access to Recovery is an example of the use
of funding to provide an incentive to involve the faith community as
well as to expand the provider base beyond the usual set of State
providers. The mental health system has, for example, used the
President's New Freedom Commission ideas as the basis for transforming
the mental health delivery system. The Federal Government also has an
important role in defining not only client outcomes, but also
performances measures for our systems of care. Accountability will be
served if the State-Federal partnerships can implement standardized
measures, are using common outcome measures such as the NOMS, to
demonstrate the effectiveness of our services
The Federal Government can also play an important role by
adequately funding research and the application of best practices. It
is not helpful to cut the Addiction Technology Transfer Centers budget
as proposed by the President. Nor is the proposed elimination of
funding for Best Practices Coordination and Evidence Based practices.
Any federally funded research needs to take into account the variation
in needs from State to State given demographic and other defining
differences. Finally the Federal Government needs to be consistent
about its message. If Congress believes something is a priority, it
needs to fund it. Establishing priorities without funding serves only
to further overburden State and local systems that are generally
straining under the pressure for services.
The role of the local community is a largely untapped resource in
this effort. The opportunity for real progress toward meeting the
challenges of substance abuse and mental health is at the community
level. There are business and faith leaders, non-profit organizations,
members of the recovering community, and other citizens who want to be
involved. The SPF SIG program has been a good example of community-
State-Federal partnerships. Restrictive State and Federal grants have
served to limit and dis-empower local leaders. Community leaders are
closest to the problems and given flexible funding, they can identify
the real needs of their neighborhoods and make the necessary choices.
The environmental and cultural changes that are required to change
negative trends are largely controlled by local communities. If they
are not recognized for their key roles and given both the authority and
the responsibility to make change, long-term solutions will remain
elusive.
Question 2. It is clear that meth is fiercely addictive, and that
individuals can be hooked from using just once. This makes it more
difficult to target one specific population at risk for meth use.
Therefore, how does an individual have access to treatment that fits
that individual's need?
Answer 2. The balance between designating and serving priority
populations vs. an open door policy to serve any individual in need of
treatment is delicate. Ultimately decisions to treat should be based
upon medical and clinical necessity which takes into account the unique
needs of the client who desires or is in need of service. Every person
should be screened, assessed and evaluated for services and if in need
of treatment should be delivered in the lowest level of care possible.
In Wyoming, we are putting a great deal of emphasis on social
marketing geared toward young people. Our hope is to raise awareness
toward the severe impact of meth use on health, physical appearance,
and all aspects of their development. Prevention is critical in meth
because of the highly addictive nature of this drug.
Additionally, Wyoming has been working toward the regionalization
of services. While not every county or community can afford to provide
a full continuum of services, we believe it is important to recognize
that service availability close to the client's home is essential to
optimal recovery. Thus, we are gradually funding the continuum to each
region. We are also expanding the availability of strategies such as
tele-medicine.
Access to Recovery funds have been a tremendous help to us in the
effort to provide meaningful early intervention for youth with meth or
other drug or alcohol problems. Given the hideous nature of meth's
addictive qualities, this early intervention with young people is a
critical capability.
Finally, we are partnering with the departments of Corrections and
Family Services to provide targeted, wrap-around services for mothers
with young children. We intend to make use of para-professionals as
family resource advocates. By recruiting, training, and certifying a
workforce composed of recovering addicts, we can provide intensive in-
home services to families. I see this as one effective answer to the
problems of small communities recruiting a professional, therapeutic
workforce.
Question 3. How have you worked to ensure that areas, especially
rural areas have access to the most up-to-date information and
resources to treat and prevent substance abuse?
Answer 3. The State of Wyoming contracts with the Center for
Applied Science and Technology (CASAT; an organization independent of
State government) to provide training, technical assistance, and
certification of all substance abuse providers practicing in the State.
A major portion of their work is conducting training events targeted at
specific needs of individual centers, particularly those located in
rural and frontier areas. Our State licensing law requires continuing
education for license or certification retention, and these training
events conducted by CASAT meet the required criteria for continued
education.
The State recently invested in tele-medicine technology and
workforce development, which will provide an additional opportunity for
staff in remote areas to link with the educational presentations,
training, specialized consultation and supervision that is essential in
the implementation of evidence-based practices.
Question 4. Can you explain the 15/22 rule that you referred to in
your written testimony?
Answer 4. Under the Adoption and Safe Families Act, if a child is
in foster care for 15 of the last 22 months, the State is required to
initiate legal proceedings to terminate parental rights. There is a
broad, almost engulfing exception for what the law calls ``compelling
circumstances.'' Research shows that one of the strongest motivating
factors causing people to enter and remain in treatment is the loss of
their children. If the system is able to make treatment available as
quickly as possible after the children have been placed in foster care,
more parents may be successfully reunited with their children.
The failure of judges to understand the brain science means that
too often, addicted parents are simply court ordered into treatment
with little or no meaningful supervision. In a family treatment court,
the progress of the parent is closely monitored, unlike in most general
family courts. If you study the brain scans, you will note that serious
brain damage has occurred in the brain of the active addict. The neuro-
biological damage to that portion of the brain where a person makes
choices and exercises judgment precludes the addicted parent from
following through without close supervision, drug testing, and a system
of swift sanctions for violations. The addiction has also hijacked the
brain's reward system. As a result, the person has come to rely on
drugs to simply feel normal. There are research-based practices that
re-institute the reward system, allowing the person to feel rewarded by
engaging in positive, healthy behaviors. I have attached the research
on the strategy known as ``contingency management.''
[Editor's Note: Due to the high cost of printing, previously
published materials are not reprinted in the hearing record. The above
referenced document may be found at http://
www3.interscience.wiley.com.]
The primary point of my testimony was that the 15/22 rule can be
effectively used along with best practices to significantly reduce the
numbers of children removed from parental custody, and/or to greatly
reduce the length of time children are in State custody. However,
social workers, judges, and others need to understand the brain science
so that our system contains programs with a greater likelihood of
success.
Response to Questions of Senator Enzi by Terry Allebaugh
Question 1. In your testimony you commented on the success your
organization, New Hope, Inc., has seen through the Projects for
Assistance in Transition from Homelessness (PATH) program; has your
organization ever applied for the Grants to Benefit Homeless
Individuals through SAMHSA?
Answer 1. Housing for New Hope has twice been part of a
collaborative application for SAMSHA demonstration projects focusing on
the chronic homeless in 2004 and 2005. Both applications were done with
partner agencies in neighboring Wake and Orange Counties (along with
Durham County, we are known as the Triangle), and were submitted by the
Triangle United Way. Each Grant Opportunity had a very limited number
of project awards, and though we received a relatively high score, we
were not funded.
Question 2. Mr. Allebaugh, in your testimony, you mention that both
men, Concrete and White Mike, declined offers that would connect them
to services. Mike's story resulted in a positive outcome but it appears
that Concrete has not been as successful thus far. How does your
organization handle cases like Concrete and how does the Projects for
Assistance in Transition from Homelessness (PATH) program help you in
these endeavors?
Answer 2. It is through our operation of the PATH program that we
made contact with Mike and Concrete. Through PATH we are able to
outreach and connect some of the chronically homeless to services and
housing. However, PATH staff cannot do any continued services once a
person is referred to a clinical team. What SELHA would fund is
clinical teams focusing on the homeless. This team could either
intercede when Concrete was being released from the hospital, or work
with the PATH team to engage, and then continue to render psychiatric
services, thus providing a continuity of services, which is essential
for this vulnerable population.
Question 3. One comment many States have expressed is that the
flexibility of the grant programs within SAMSHA is one of the best
characteristics of the program. Can you speak to the degree of
flexibility within the PATH and reasons why PATH does not provide the
flexibility New Hope identified in the Services for Ending Long-term
Homelessness Act (SELHA) bill?
Answer 3. Re-stating from above, PATH is limited to providing
outreach only, and we are prohibited from continuing services once we
have referred a person to a clinical services provider. By requirement,
PATH personnel are nonclinical. The problem arises that the existing
pool of service providers have limitations in their capacity to serve
the homeless. These include: inability to conduct outreach and engage
the homeless and lack of knowledge and motivation to respond to the
special characteristics and needs of the homeless. What we have learned
from our experience is that too many of the homeless we refer are not
served by the current system and once again they fall through the
cracks. With a clinical services team (funded through SELHA) working
with the PATH outreach team, and with the availability of the housing
units we have built and are building, we could outreach, house, and
provide ongoing services, and thus bring stability into the lives of
the chronically homeless, and end chronic homelessness in Durham.
Response to Questions of Senator Burr by Terry Cline
Question 1. In an effort to make the most of limited Federal
resources by leveraging funding partnerships, such as your partnership
with the Department of Education under the ``Safe Schools-Healthy
Students'' initiative, Senator Reed and I think SAMHSA should provide
targeted funding for mental health and substance abuse services at
``permanent supportive housing'' facilities to help end the cycle of
chronic homelessness.
The city of Portland recently reduced the number of chronically
homeless by 70 percent when the city, the county, and the housing
authority partnered to provide resources so agencies could open 480 new
units of ``permanent supportive housing.''
I know SAMHSA has the authority to provide some funding to
organizations providing services to homeless individuals, but how much
of that currently supports this highly cost-effective model?
Answer 1. SAMHSA helps support services in permanent supportive
housing primarily through two mechanisms. First, SAMHSA is a primary
partner in the recently completed Collaborative Initiative to Help End
Chronic Homelessness, the 3-year collaboration between HHS (SAMHSA and
HRSA), HUD, and VA that addressed the mental health, substance abuse,
primary health care, supportive housing, and other service needs of
individuals experiencing chronic homelessness.
The very poignant example that you used regarding the success of
the city of Portland in addressing chronic homelessness is germane to
the Chronic Homelessness Initiative. Central City Concern, located in
Portland, was one of the 11 sites under the Initiative. SAMHSA is
gratified that one of our grantees helped contribute to helping to
reduce chronic homelessness in their community.
In fiscal year 2007, SAMHSA issued a new funding announcement,
titled the Services in Supportive Housing Program. This 5-year
initiative will help end chronic homelessness by funding services for
individuals experiencing chronic homelessness and families in
coordination with existing permanent supportive housing programs and
resources. The service grants are intended to fund programs that use
services or practices that have been shown to be effective and that are
appropriate for the target populations. Program and client outcome data
will be collected and reported in accordance with the Government
Performance and Results Act. Fiscal year 2007 funding of $3.5 million
will allow SAMHSA to award eight grants.
While providing services to individuals living in permanent
supportive housing has proven to be successful in addressing the needs
of homeless individuals, it is not the only successful model for
providing services to this population. SAMHSA also supports residential
treatment programs that provide services to individuals who were
homeless at intake. While supportive of services in permanent
supportive housing, we want the flexibility to address the needs of
homeless individuals in other settings that have proven to be
successful as well. There are many ways to achieve our shared goal.
We also want to highlight that SAMHSA in its programs is focusing
on recovery. As we look at recovery across our substance abuse and
mental health portfolios, including the block grants, we are focusing
on key elements of recovery including whether the individual has stable
housing.
SAMHSA's total budget that addresses homelessness including the
Projects of Assistance in Transition from Homelessness and
discretionary grants focused on homelessness is $99,876,000 in fiscal
year 2007.
Second, SAMHSA administers Grants for the Benefit of Homeless
Individuals (GBHI) using its authority under Section 506 of the Public
Health Service Act (PHSA).
The purpose of the program is to award grants, contracts and
cooperative agreements to community-based public and private nonprofit
entities for the purposes of providing mental health and substance
abuse services to homeless individuals.
From a survey of grantees conducted in April 2007, we know that 20
percent of current GBHI grantees deliver supportive housing services.
Therefore, we may estimate that $7,639,000 in 2006 funds for GBHI and
$7,694,000 in 2007 funds will be used for supportive housing services.
The remainder of GBHI funding supports services involving other types
of housing.
In guidance given to grantees for the survey, supportive housing
involves three essential elements:
(a) Permanent affordable housing, in any housing configuration
(scattered, clustered, dedicated or mixed use single site [e.g.,
apartment building or SRO], units obtained from private landlords using
tenant-based rent subsidies, etc.). [Permanent housing means no limit
on length of stay and no requirement that tenants move out if their
service needs change.]
(b) The housing is intended for, and for the most part actually
occupied by, people who have been homeless or are at risk of
homelessness and who have special needs including substance abuse
problems or mental disorders, or other substantial barriers to housing
stability.
(c) Supportive services attached that are designed to help people
maintain the housing.
Thus, supportive housing does NOT include transitional (time-
limited) housing or residential treatment, or projects that primarily
help clients get housing subsidies after they complete a grant-funded
treatment program. Supportive housing includes only the simultaneous
provision of permanent housing and treatment services to homeless
people.
[Whereupon, at 11:35 a.m., the hearing was adjourned.]