An African - American Perspective of Life In Westchester County In The 90's Report To Andrew P. O’Rourke Westchester County Executive African - American Advisory BoardIl. III. TABLE OF CONTENTS Cover Page Letter to County Executive Andrew P. O'Rourke Table of Contents Introduction Statement Executive Summary Reports Economic Development Housing Criminal Justice Substance Abuse Education The African American Advisory Board Member Listing Acknowledgements Consultants Pages 22 45 78 98 124 151 161 166December 4, 1990 ‘The Honorable Andrew P. O'Rourke Westchester County Executive Michaelian Office Building White Plains, NY 10602 Dear Mr. 0*Rourk In 1987, in association with the Westchester County Board of Legislators, you established the Westchester County African-American Advisory Board (AAAB) to ladvise you on policy and direction on matters relating to African Americans residing in Westchester County. The AAAB report is enclosed for your review. Our report "An African-American Perspective of Life in Westchester County in the 90's" reflects our assessment of the following subject areas as they relate to African Americans within the Westchester community: economic development, housing, criminal justice, substance abuse and education. ‘The selection of these topics is based on our judgement of the critical areas requiring examination by our limited personnel and resources. We are aware of your interest and concern for other subject areas such as employment, the elderly, general health and AIDS. These, of course, and many other topics are of significant importance to African Americans and, we believe, should be the focus of this Board in its continuing review of critical issues. We do, however, encourage all functions within the county government structure to review these and other appropriate topics as they relate to the African-American community. It is our intent that the enclosed report should, as you requested, serve as a tool for the Westchester County Government structure and other interested parties to address key issues effecting the African-American community. We have attempted to let our facts tell our story and believe we have done so. We further believe that our recommendations, while not providing all of the answers, offer viable approaches to addressing critical issues. ‘Thank you for the executive action of creating the AAAB and the opportunity to serve our community. It is our sincere hope that our work contributes to the long-term economic, social and competitive health of Westchester County. ‘The African-American Advisory Board /hab EnclosureINTRODUCTION In May 1987 the County Executive, Andrew P. O'Rourke, in association with the Westchester County Board of Legislators, established the African-American Advisory Board (AAAB) consisting of Chairperson, Dr. James Gaddy, Superintendent of the New Rochelle School District and 21 local residents who have demonstrated their expertise, concern for and interest in the needs and well being of the people of Westchester County, with emphasis on the African-American population. This action demonstrates a decisive executive act that may lead to substantial improvement in the quality of life within the African-American Community. The establishment of the AAAB officially recognizes the need for an entity representative of the African-American community to advise and assist the County Executive on policy and direction for all matters relating to African Americans in Westchester County and to ensure that those interests and perspectives are considered in the formation of public policy in Westchester county. The charge of this Board is to: - Advise the County Executive on issues that affect the quality of life for African Americans in Westchester County. - Review and monitor County policies, procedures, . practices and programs for their impact on African Americans.INTRODUCTION _ work with the County Executive to develop and recommend WekSctive policies and/or services to eliminate $fgcrimination and improve opportunities for African Smericans and their families. _ iaison between the executive, administrative and other Yegislative bodies throughout Westchester County to promote African-American interests. Assist the County Executive's Office of Affirmative Action to liaison between and among all African-American Groups in the county. _ promote equal status of African Americans and encourage public policy to cooperate in such endeavors, thereby mpacting the public and private sectors of the County. - Review and analyze grants, proposals and statistical materials for recommendations to the County Executive. - Assist the County Executive in developing and maintaining a roster of qualified African Americans to Serve in County government, both in salaried positions and volunteer appointments to County boards and commissions. - Perform other such duties as may be assigned by the County Executive. With their role defined, the AAAB appointed an Issues Committee to determine the areas to be addressed. The committee recognized that with the limited number of board members, they would be unable to address all of the issues before them. After much deliberation, the following issues were given priority: - Economic Development - Housing - Criminal Justice - Substance Abuse - EducationINTRODUCTION Committees were set up to study these issues and to make recommendations. While an individual committee was not created to study the employment issue as it relates to African Americans, representatives of the AAAB executive committee met with the County's Affirmative Action Officer and Personnel Officer to review employment practices, affirmative action policies and the participation/representation of African Americans in Westchester County government. Although the findings of the AAAB indicate percentage representation compatible with the County-wide African-American population, the AAAB is concerned that the distribution level is not reflected at the Senior Management /Income levels. African Americans are not strategically placed in County jobs that allow career path ascendency to occur naturally. Approximately one half of the County agencies do not have African-American officials or administrators and one fourth of the agencies have no African-American professionals. The result gives race the appearance of being a factor in the hiring/ appointment/promotion process. While this issue requires further examination, it is clear that the absence of meaningful representation in key management/staff positions is a major inhibitor to selection for senior positions and to resulting - access to higher income levels (i.e., when the selection processINTRODUCTION for filling senior positions includes outside hiring, then it may be helpful to utilize our National Labor Pool to generate a variety of candidates/backgrounds) . It is also our view that an aggressive identification process must be developed for filling openings on Boards and Commissions. Meaningful African-American and Hispanic representation on this arm of the county administrative structure would also lead to a variety of viewpoints/influence in the decision making process. This point is made because we believe the County government's employment/appointment practices should yield results that place the County government in a posture of "leading by example." This posture would enhance the ability of a limited, but visible, number of African Americans to individually influence the decision making process in addressing critical issues such as economic development, housing, criminal justice, substance abuse and education. It is the intent, therefore, of the AAAB to provide specific focus on the employment/appointments process in its ongoing deliberations and AAAB is working with the Office of Affirmative Action and the Personnel Department to ensure that proper focus is provided to this area of concern. It is appropriate to. acknowledge, however, that during the General Public HearingINTRODUCTION there were considerable comments about the perceived need for a Westchester County Human Rights Commission. This report does not emphasize the issues of general health services or the problems of the aging as separate issues but this should not be construed to mean that these areas are not of importance to the AAAB but rather issues to be explored at a later time. Using the findings of each committee as the starting point, it should be noted that "no research enterprise begins in total ignorance of the problem to be studied; earlier work always provides some guidelines in the development of the new inquiry." (Source: Supplemental Studies for the National Advisory Commissions on Civil Disorders (The Kerner Report), reference page 3, July 1968). This report initiates a continuing process for African Americans. It sets forth for the County of Westchester, the essence of the work of the AAAB in the five areas of concern to date. It presents specific recommendations that are practical and achievable within the current constraints of budget considerations, political realities and the powers of the County Executive.INTRODUCTION The recommendations in this report are inter-related. some may require increased expenditures, but most are a matter of continuing executive leadership contributing to restructuring and specific targeting/utilization of Human Resources to foster an improved delivery system. This executive leadership role includes ensuring that there is adequate representation in senior staff positions, on volunteer and paid commissions and on advisory boards. This role further includes the assignment of a permanent role and function for the African-American Advisory Board.EXECUTIVE SUMMARY The establishment of the African-American Advisory Board (AAAB) by County Executive, Andrew P. O'Rourke represents a positive executive action on behalf of racial relations within Westchester County. The AAAB was charged by the County Executive to review and recommend effective policy to eliminate discrimination and to advise him on issues that will affect the quality of life for African-American residents of Westchester county. It is the hope of the AAAB that this action is a significant and meaningful step toward the inclusion of African Americans in determining public policy decisions that will ensure that their interests and perspectives are part of the process of governing/preparing Westchester County for the 21st century. Some key demographic data to be taken into consideration when reviewing this report is as follows: - According to the 1980 Census, African Americans represent 12% of the total population (or 104,815 persons) and is the second largest single ancestry/ ethnic group in Westchester County. The 1990 Census data will reflect a substantial increase. - Of the 5,000 reported homeless in Westchester County, 80% are African Americans; in addition, 75% of the prison population is African American. - 63% completed high school and 12% have some college - 42% of African-American families have incomes above $20,000.00 - The New York State figures indicate deaths due to AIDS in African-American men in their thirties is six times that of white males and African-American Women at twenty-two times greater than their white counterparts. (Figures for Westchester County were not available.)EXECUTIVE SUMMARY - According to New York State data, African-American infant mortality rates are two thirds higher than those of white infants (current figures for Westchester County were not available). - To the extent that African Americans are more involved in intravenous drug use than whites, the health consequences of drug abuse may be greater for African-Americans. No discussion of the African-American condition in Westchester can be held without a recognition that race has played a role in the outcome. The effects of exclusion based on race and the resulting situation of African Americans in Westchester are evidenced by chronically high unemployment rates, poor and segregated housing patterns, high infant mortality rates, drug and substance abuse, poor health and susceptibility to disease, inferior education and the disproportionate number of African-Americans in the Criminal Justice System. Reliable Data The AAAB has identified the lack of extensive or reliable data as a major problem in the study of African Americans in Westchester. ‘There is little information or research which provides a profile of African Americans in the cities, towns, and villages of Westchester County where they have the largest numbers.EXECUTIVE SUMMARY In Mount Vernon, Yonkers, New Rochelle, White Plains, Port Chester, Ossining, Tuckahoe, Peekskill, and Tarrytown there is limited data concerning African-American income, education, housing, employment, or other indicators of social and economic position in the overall population. However, there is available data on crime, drugs, welfare, and homelessness. The AAAB also learned that prior to the 1980 U. S. Census African Americans born in the Caribbean Islands were not listed by nationality, i.e., the island of their birth, although other foreign born groups have always been differentiated by their country of birth. In its research, the AAAB has been careful to use available data specific to African Americans in Westchester. The main source of available information is the Westchester County Department of Planning. However, it should be noted that this data is extrapolated from the Federal census. "Data from decennial censuses falls into two basic categories: complete count or 100% data and sample data...The Bureau of the Census uses many complex procedures to ensure the greatest degree of accuracy possible but cannot, by any means achieve, error-free data." Source: Census Report November 1985 NO.5 - Social and Economic Findings of the Census Westchester County Department of Planning - Cover Page.EXECUTIVE SUMMARY The AAAB asserts that the absence of data specific to the African American in Westchester indicating successes and shortcomings is yet another example of exclusion as a result of racism. This mitigates against effective social and economic planning for and with the African-American citizen of Westchester. After reviewing many topics for possible examination, five topics were selected: economic development, housing, criminal justice, substance abuse, and education. In developing this report, the AAAB conducted public hearings and interview sessions with community-based organizations, homeless persons, professional individuals and Westchester County government personnel. The findings served to crystallize key issues, areas of concern, and recommendations for the survival of African Americans in Westchester County. Economic Development The Economic Development Committee highlights its observations and conclusions on the shortcomings of Westchester County's economic strategies and public policy thrust as it relates to African Americans. 10EXECUTIVE SUMMARY Economic Development Committee observed: That there is an untapped, underutilized pool of African- American business owners, business management trained individuals, corporate executives and government officials that reside in Westchester County. The lack of a Westchester County Government policy designed to include African-American business persons in the procurement of goods and services. The need for an economic development strategy versus a "Social Program” strategy to promote and enhance the development of African-American businesses that are presently located in Westchester County. The need for a strategy to encourage other African-American businesses to locate in Westchester County and to provide such technical assistance, financial and tax incentives necessary to contribute to their success. That African-American businesses are not perceived by County Government as contributing significantly to the economic strength of Westchester County. These businesses are relegated to the "Lifestyles" section rather than the “Business” section of the County's economic planning. Economic development for African Americans in Westchester County represents an opportunity to promote and support an entrepreneurial system that can create jobs, contribute to the growth of the business community, and impact the development of policy and planning. Housing During the public hearings that were conducted by the AAAB Housing Committee, the following issues emerged as having a significant impact on the African-American community: - Declining affordable units a.EXECUTIVE SUMMARY - Discrepancy in the income of African-American households versus white family households - Housing discrimination - Lack of support systems for families with special needs; need for training of existing housing staff to increase their effectiveness in providing services to the homeless to secure and retain permanent housing - Need to increase monetary shelter allowance levels for Westchester County Department of Social Services recipients nearer to those of market rents without having an inflationary effect on those market rents Some of the statistics as produced by the New York State Department of Social Services (1984), give a statewide profile that reveals that the homeless are predominantly non-white (90 percent families, 71 percent single individuals). ‘The Westchester County figures at best can be estimated at 80% African Americans. Thus, any discussion of the characteristics of homelessness is largely a discussion about African Americans. While these issues are not new to the African-American community nor to County Government, they are especially alarming in these times of federal retrenchment and the dwindling of state funds. ‘The Housing Committee recommendations include a concentrated advocacy focus on behalf of the homeless; increasing the number of affordable units; the development of public policy that resists the institutionalizing of homelessness; the development 12EXECUTIVE SUMMARY of a "Fair Share" plan for providing affordable housing with incentives for local communities to meet targets; and the formation of a housing crisis team support system. Criminal Justice ‘The Criminal Justice Committee identified racial bias in the areas of economic development, job opportunities, housing, education, and law enforcement as the overriding reason for the increasing high rate of African Americans in the Criminal Justice system. In Westchester County, African Americans represent an estimated 12% to 15% of the total population, but 68% of the incarcerated population. Additionally, recent national data indicates that 25% of black males are incarcerated. The Westchester data indicates that 25% of black males are involved in some element of the Criminal Justice process. In addition, statistics reveal that on any given day, one in four African-American males are known to the Criminal Justice System through prison, jail, probation or parole. The Committee also found that incidents of harassment and racially motivated violence by law enforcement officers were not unusual in the African-American community. 13EXECUTIVE SUMMARY Coupled with this, the low percentage of African-American officials in Westchester cities, towns, and villages, the County police, Department of Probation, the Courts, Office of the Distriét Attorney and other areas of the Criminal Justice System is disturbing. By category, there are public policy and programmatic responses ranging from pre-incarceration, alternatives to incarceration, and post release. As a matter of Public Policy the County should create an atmosphere which encourages African Americans to more readily serve as jurors. In addition, the judicial system should be encouraged to reach out for African Americans to serve as jurors through education and public service announcements. Contrary to i popular belief, a citizen can volunteer to serve as a juror i rather than wait to be called. : The program response during incarceration should be increased work release opportunities for eligible inmates, increased use of community volunteers, and updated skills training with supportive services in the correctional facility. The pre-incarceration programs would be preventative and provide for skills training opportunities for at-risk youths and adults. Alternatives to incarceration programs such as Treatment Alternatives to Street Crime (T.A.S.C.) should be expanded and 14EXECUTIVE SUMMARY community service programs for eligible African-American offenders increased, with County and State funding. Post release programs are almost non-existent in the County and should be encouraged, revitalized, and expanded to facilitate the re-entry of ex-offenders into their respective communities, to include job training, housing, and education. Criminal involvement is a major social problem in many inner city communities heavily populated by African Americans. In addition, substance abuse related crimes are at an all time high and should not be ignored. However, these realities cannot be separated from the issues of racial equality, economic parity, and equal justice. Until these issues are programmatically addressed, recidivism will continue to increase. Substance Abuse Substance abuse can be defined as the excessive use, misuse, abuse and/or addiction to legal and/or illegal substances, including but not limited to alcohol, marijuana, cocaine/crack, and heroin. It is a disease known to the professional community as chemical dependency. Substance abuse is considered by many experts to be the major contributing factor to major social, economic, health and mental health problems impacting the African-American family and community today. 15EXECUTIVE SUMMARY It is a major factor in the upsurgence of problems such as unemployment, crime, family violence, homelessness, poor health, child abuse and neglect. It can be considered the primary factor contributing to the increasing number of African Americans in the county's jails and prisons. It is also a major contributing factor in the increase of crime in the County. Substance abuse is also considered a factor in the rate of school dropouts in the inner city schools of this County. Substance abuse impacts not only the user, who often becomes an addictive person in need of treatment, but also greatly impacts the entire family, who become co-dependents. Children are greatly affected and often neglected as well. The community becomes victim to the crime and violence that is often a part of the lifestyle of addicts and/or drug dealers. Major service gaps exist in the alcohol and substance abuse prevention and treatment programs. For example, current services need to be restructured to improve outreach into the African-American community, provide additional services for cocaine/crack addicts and those with multiple dependencies, and increase inpatient and long-term rehabilitation services. Existing substance abuse services for African Americans tend to be focused at the lower socio-economic population versus the large middle income African-American community. These services must be provided throughout the African-American community. 16EXECUTIVE SUMMARY Additional services are needed such as alcohol crisis centers and transitional programs for rehabilitated drug and alcohol users. Education The Education Committee Report is divided into four (4) sections. The overriding theme is the lack of coordination between essential government services and local school districts to meet the diverse educational needs of the African-American family For example, there are limited, inadequate, programmatic connections between the various service delivery mechanisms which deal with: - Homeless families and their children - The economically disadvantaged families - The unemployed parents and youth - Single parent families, especially teens who often lack the necessary parenting skills to cope in today's society - Day Care services for low and moderate income families Section I addresses the issue of a community school/county collaboration on day care for the African-American Community. It includes as one of its recommendations the creation of an Office of Early Childhood Services designed to effect and implement public policy as related to child care for all families who desire and need such services. 7EXECUTIVE SUMMARY Section II deals with educating and nurturing African-American homeless youth and focuses on administrative and legislative remedies, namely the 1987 Stewart B. McKinney Homeless Assistance Act, which addresses the educational needs of homeless children. Committee members were unable to obtain precise data from the Westchester County Department of Social Services on the number of African-American children living in County facilities. The Committee was told that the County does not maintain such information (by ethnicity). However, data gathered from discreet interviews and local school records indicate that African-American children are the single largest group of homeless children. Therefore, this section is addressing largely African-American children. ‘The Committee makes recommendations which are administrative including providing staff to deal with educational decisions during intake procedures, health and medical screening for each child, and pre-school programs for homeless children. Section III addresses the educational needs of African- American economically disadvantaged students and families. The Education Committee presents documented evidence that a high proportion of African-American families live in poverty in our county. 18 { i iEXECUTIVE SUMMARY The economic conditions that existed in the 1970's and which led to federally sponsored job training programs such as the Comprehensive Employment and Training Act (CETA) have returned to negatively affect a significant number of African Americans in Westchester in the 1980's and 1990's. However, the major difference is that there are no job training programs comparable to CETA. This fact has created an economic and educational drain among a significant number of African-American families in our County. Students in economically disadvantaged families are three times more likely to dropout than students from families with higher economic status. (CED, 1987 African-American and Hispanic youth in New York State are much less likely to complete high school than are white youth. - Among African-American students who entered ninth grade in the fall of 1981, 54% failed to graduate with their class in 1985 - In contrast, 79% of white youth graduated with their class in 1985 (Source: Black New Yorkers - Status Report - Vol. 2 January 1989, pg. 33) If one examines the labor market problems of African Americans in New York State and the County, the correlate of educational differences must be explored. Whether at the state or county levels, the educational achievement of African- 19EXECUTIVE SUMMARY American households is lower than white households. As such, the mean earnings of African-American households are less than the mean earnings for white households when viewed by race, educational level, and family type. Based on 1980 mean earnings, an African-American married couple, with the family head having a college degree, earned $8,000 a year less than the mean earnings for a similar white family. Section IV addresses Parenting Skills and Educational Needs of Single Parent Families with an Emphasis on Single Teen Parents. “Families...especially those in poverty are in greatest jeopardy in America today," said T. Berry Brazelton. The social literature of this decade has focused highly on the disproportionate number of single families headed by African-American females and on the poverty level of these families. Figures for Westchester County (perspective, 85) showed an increase of 40.1% Westchester female-headed families living in poverty. Fifty-seven percent of female-headed families with children under 18 live in poverty. Of the total percentage, 37% are African American. The largest proportion of African-American female-headed and single teen households are found concentrated in 13 of 43 towns, cities and villages in the County ranging from 18% in Pelham to 80% in Mount Vernon. 20EXECUTIVE SUMMARY Despite this gloomy picture, members of the Committee did find some programs in the private and not-for-profit sector in the County that provided concrete and supportive services for children of teens and single parents. Conclusion The consensus of the AAAB is that these issues cut across all aspects of family life for all citizens of Westchester County, but while the nature of the problems may be held as universal, racism as a means of exclusion exacerbates the conditions for African Americans. It is hoped that this report will provide insight into a perspective of African-American life in Westchester County as seen by the members of the AAAB and that this first glimpse, while by no means complete, points out some of the areas requiring continued focus to insure full participation of African Americans in all aspects of Westchester County life. The AAAB further asserts that by being aware of these areas the decision makers can develop a better plan for the future of Westchester County. To ensure that the policy and direction for all matters pertaining to African Americans in Westchester County are considered in the formation of public policy, the AAAB recommends that the County Executive initiate the action necessary to give permanence to the roles and function of the African-American Advisory Board by urging legislative enactment or resolution 21AFRICAN-AMERICAN ADVISORY BOARD ECONOMIC DEVELOPMENT COMMITTEE ECONOMIC DEVELOPMENT COMMITTEE MEMBERS Ms. Dorothy J. Orr Chairperson Ms. Cheryl Lynn Brannan Mr. Ronald E. Harrison Ms. Norma V. Mack Ms. Pearl C. Quarles 22ECONOMIC DEVELOPMENT INTRODUCTION The Economic Development Committee of The African-American Advisory Board (AAAB) is concerned that there is no evidence of a strong vibrant African-American entrepreneurial class that is job creating and a part of mainstream economics in Westchester county. There is the lack of a clear and concise rationale for the inclusion of African Americans in the economic development strategy of Westchester County. The Westchester County Office of Economic Development does not have as a part of its charter, language, a budget or staff which addresses the development of a Blan of inclusion. Without such a rationale, an effective policy that leads to programmatic solutions can not be fostered. The consequences of which are: - The absence of a governmental approach that enables African Americans to gain access to business opportunities on County projects; - No affirmative action/contract compliance structure that spells out the County's commitment to the development and enhancement of African-American business; - an Office of Affirmative Action that does not have as a function the development of goals, monitoring of activities and the reporting of results on the participation of business enterprises owned by persons of color on construction or procurement opportunities; - An Executive Order that applies to contracts over $100,000.00, which excludes a large number of small African-American businesses from its support and protection. - The County does not utilize its full potential to influence banks and other lending institutions to make capital available to African-American businesses for loans, lines of credit, business acquisitions, start-ups, and expansion activities; 23ECONOMIC DEVELOPMENT The County failing to set the appropriate example for the private sector that would create the atmosphere necessary for the initiation of a partnership to promote and expand access for African-American entrepreneurs to achieve the goals of inclusion for African Americans in the total economy of Westchester County; No mandate or requirement by prime contractors to subcontract to African-American firms on County projects; No partnerships or joint venture activities which involve African-American developers, architects or engineers in the planning of major development activities in the County, i.e., capital improvement projects; The need for an economic development strategy, versus a "social program" strategy to encourage African-American business owners to locate in the County and the need for the County to provide technical assistance, financial and tax incentives necessary to enable these businesses the greatest opportunity for success; The need for a larger strategy designed to include African-American business persons in the procurement of goods and services by Westchester County Government. While the absence of a policy is of major concern to the committee, foremost among other issues of concern is the noticeable absence of relevant statistical data regarding African-American business. The consequences of which are: No true definition or scope of the problems to be solved. The inability to appropriately plan. No sense of the resources needed for problem resolution. No knowledge of the resources available to problem solve. The Committee is aware of the study undertaken by The Westchester Coalition and Mercy College to study businesses owned 24ECONOMIC DEVELOPMENT by persons of color with funding from the County. However, the Committee is also aware that the amount of funding made available would in no way cover those costs necessary to research and analyze the raw data such a report would require. The Economic Development Committee feels strongly that the unique needs of the African-American business community are unrecognized or unacknowledged by County government. Issues such as bonding requirements and access to capital continue to be serious problems that disallow African Americans from being competitive and enjoying economic growth. With such a large number of African Americans who are known to be homeless in Westchester County, there is no substantive participation by African Americans in the planning or developing of the transitional housing this group will occupy. There are no African Americans in upper management level staff positions making the decisions for the placement and the design of counseling plans for these persons. Racial discrimination in the market place is also a serious concern based on its severe consequences for African-American entrepreneurs. Most African Americans have not been able to accumulate the acceptable capital and assets necessary to collateralize loans needed to finance or acquire businesses or to take advantage of business opportunities. 25ECONOMIC DEVELOPMENT The Committee identified the lack of an African-American bank or major lending institution in Westchester County as another area of concern and there appears to be no effort being made to attract these lenders. There is no evidence of investments in African-American banks that are in close proximity to Westchester County. Investments by County government in African-American banks are important to the African-American community because of those banks increased capacity to provide capital for business development and neighborhood improvement. There is a segment of the African-American economy that has not been discussed thus far and for which no planners, lenders or program designers have made provisions. That segment is the small neighborhood/retail business. Urban Renewal was portrayed as an innovative Federal program during the 1960's. The legislative mandate of this program was to remove blight; revitalize cities economically and socially and provide the funds necessary to accomplish the program objective. However, there was no foresight as to the disruption these actions would cause in the African-American Community. one of the immediate effects of urban renewal was the dislocation of African-American families and removal and businesses. In the instance of African-American business, the removal was usually permanent because the business owner seldom was able to re-establish his/her business in the original 26ECONOMIC DEVELOPMENT neighborhood or elsewhere. Some examples of this urban renewal African-American business phenomena were in the development of the New Rochelle Mall, The Galleria in White Plains, and the Cross Roads Mall in Greenburgh. In each instance, the African American business person who was removed because of urban renewal action had the right of first refusal to return to the redeveloped site. In most cases, however, the business person could not exercise the option to return because of exorbitant space costs, and the reluctance of local banks to provide the financing needed for such ventures. Most African-American businesses were locally based and service oriented, such as auto mechanic shops, garages, beauty parlors, tailor shops, candy stores, restaurants, grocery stores, funeral parlors, and other professional services. These small locally based businesses sometimes called "Mom and Pop Businesses" were not considered by lenders to be good credit risks. Prior to the advent of urban renewal, these businesses, though small in size, gave employment to local residents and young people. The loss of these businesses meant the loss of employment opportunities and a potential positive benefit associated with the expansion of African-American business development. 27ECONOMIC DEVELOPMENT The irony of this situation is that when the new malls and gallerias were built, there were no firms owned by African Americans or by other persons of color that participated in the construction of these projects. In 1968, a small group of African-American construction contractors came together to address the issue of lack of access to job opportunities with County government and public works contracts as well as access to bid information on potential County projects. This group later became incorporated as the Westchester Minority Contractors Association (WMCA) and its membership was opened to other persons of color. For the next few years, although the group remained small, they made attempts to shape and influence public policy on contract awards, the bidding process and bonding requirements for doing work with Westchester County. These efforts met with some success, for in 1977, under the aegis of the Westchester Coalition, Inc., the County awarded WMCA a grant to provide African-American business owners and other persons of color with technical assistance, and a clearing-house for information about public sector contracts. Although other efforts to organize African-American businesses and other persons of color were started in Mount Vernon, Yonkers, Peekskill, and Port Chester, the formation of WMCA was the strongest broad based organizational effort 28ECONOMIC DEVELOPMENT designed to address the issues of participation in County contracts and public work contracts as prime contractors, as well as subcontractors. The weakness of this effort, however, was WMCA'S concentration on construction contracts which, while they had large dollars attached, were so large that most African-American businesses could not bid them. The lack of bonding capacity, and banks' traditional reluctance to finance payroll and extend lines of credit, prevented African-American entrepreneurs from accessing the financing necessary to compete in the market place. Also, the majority of assistance provided to the member businesses was geared to the construction industry, very often at the expense of attention to African-American firms engaged in other sectors of economic activity. While the County continues to provide operational funds annually to this program, this does not address the issue of an economic development policy and plan which includes the African American as an integral part of the overall economic strategy. Westchester County was also awarding professional contracts such as architectural, accounting and legal planners, engineering services, borings, testings, surveys, consultants, insurance brokerage, and property appraisal services, yet African- American entrepreneurs, for the most part, were not able to capture a significant part of these markets. 29ECONOMIC DEVELOPMENT The County also bought millions of dollars worth of goods and supplies for its numerous facilities but there were very few African-American or other persons of color who were selected for these contract opportunities. ‘There was seemingly a total lack of awareness by County government that African Americans were only in the smallest way participants in the abundant opportunities available in Westchester County. African Americans were not perceived as being a vital part of the economic fabric of Westchester County. There was evidence of a need for a policy by Westchester County to address this disparity. In 1984, the County Executive was presented with a comprehensive plan designed to include businesses owned by persons of color and women. This plan called for percentages of all County contracts to go to these groups in an effort to increase their level of participation in County work opportunities. This plan was based on the Dade County Plan that was upheld by the Supreme Court and said to be constitutionally sound. The legal department of Westchester County, however, concluded that there were questionable constitutional issues that the plan raised. The County offered an alternate plan, Executive Order #1-84, but this excluded women, focused on construction, contracts only; failed to address procurement opportunities and the issues of professional contracts; and made no provisions for 30ECONOMIC DEVELOPMENT monitoring, reporting, data collection, or statistical evaluation. Further, the County's decision to have the participation percentages only on contracts over $100,000 dollars, excluded small African-American construction firms from the protection of the Executive Order. The Economic Development Committee has focused on these issues as part of the larger economy and its components such as finance, management, capital accumulation, cash flow needs, market share and procurement. An appropriate role for Westchester County Government in fostering African-American economic development, is addressed in this report. Westchester County needs a vigorous African-American economic development policy. Currently, it does not have one, nor does it have a strategy to develop African-American businesses. African-American business and African-American economic development are complementary but not synonymous. "Among the consequences associated with such a view are misconceived African-American business development programs, exaggerated speculations as to what such programs imply for the African-American community, and a narrow vision of the needs of African Americans." In conclusion, specific policy recommendations are presented that define the County's leadership role and links African- American business development as an integral part of the County's economic development policy. 31ECONOMIC DEVELOPMENT COMMITTEE REPORT Westchester County must develop and implement a clear and direct rationale for the County's involvement in African-American economic development as part of its total economic development strategy. Such a step would minimize the current ambiguity and diminish the lack of commitment perceived by many in the African-American community. The absence of a strategic plan, an affirmative action policy which promotes access to business opportunities for African-American entrepreneurs, denies the unique needs of the African American in business and fails to "develop" a potentially significant segment of the County's economy. The County has an Office of Economic Development, yet the charter for this department does not have a mission statement, staff or business experts, or a budget which addresses African-American business development. The County has no resident or consultant economist advising on a response that the county should be developing to the growing population of persons of color that have been identified by the Westchester 2000 Committee for the year 2000. Thus, African-American business development has not yet become an integral part of the Westchester County economic development policy. Similarly, African-American business development should be seen as one segment of the African-American economy,providing policies which protect African Americans from adverse 32 ——ECONOMIC DEVELOPMENT consequences associated with private sector policies and practices, while placing African Americans in a position to take full advantage of economic prosperity with special attention paid to the equitable distribution of returns. The precise share of the market that is controlled by African-American business is not known but according to a newly-released study conducted by The Westchester Coalition and Mercy College on minority business, of the businesses surveyed, those operated by African Americans, Latinos and women, generate annual revenues of between $116M and $250M; nearly 60% of the businesses had three or fewer full-time workers; 18% had 10 or more. The results of the Coalition/Mercy study produced some disturbing, yet not surprising conclusions. Three critical issues emerged in the finding which impacted significantly on business: capitalization, access to work portunities, and economic (profit margins). The Study indicated that capitalization, particularly at start-up, was the most severe problem to hurdle. At least half the respondents indicated the problem was race-related, while 43% specifically attributed their difficulties to racism (or, racist practices on the part of financial institutions). The survey further revealed that it is difficult for these businesses to work locally. There are no serious outreach efforts or attempts to encourage the participation of businesses owned by persons of 33ECONOMIC DEVELOPMENT color by either the public or the private sectors. While nearly 40% of those firms surveyed had government contracting experience, they were twice more likely to get work with the federal or state governments than with the local and County governments. Finally, while three quarters, or 78%, of the businesses were breaking even, more than half of those surveyed claimed their businesses were operating at a loss. The statements seem contradictory, however, they were unambiguous with the following: Money issues topped their list of concerns 72% wanted access to government bid notices 64% needed access to capital 58% needed loan application assistance Although the number of respondents to this study were low, it is the only formal information available regarding African-American owned businesses in Westchester County. The results of this study would seem to indicate that African Americans and other protected class business owners should be a high priority among the County's agendas of economic and business development policies and programs. A review of the history of economic development for African Americans confirms that there has been minimal or no enforcement or implementation by the County agencies of Executive Order #1-84 issued in 1984, (B.0. #1-84)- 34ECONOMIC DEVELOPMENT There appears to be no goals established for monitoring results, evaluation or communication of data to the African-American community. It does not appear to take into consideration the unique needs of African-American business: the inability to access capital and its bonding needs. There is no approach suggested for substantive, consistent and coordinated technical assistance by the County to these businesses. There are no provisions for outreach or recruitment mechanisms. There has been minimal effort to encourage or require prime contractors and developers to subcontract to African-American companies. Creative partnerships which involve African-American developers, architects, or engineers in the planning or development of housing for the homeless appear to be nonexistent. There is little evidence of encouragement of the lending community to address the capital formation needs of African-American entrepreneurs. African-American entrepreneurs with proven track records have been unable to obtain access to contracts and of necessity concentrate their business outside of the county. The Office of Affirmative Action does not have as a function the development of goals and the monitoring responsibility for the results of participation by business enterprises owned by persons of color on construction or procurement opportunities. While E.0. #1-84 provides for an Inter-agency Council, it has been suggested to the AAAB Economic Development Committee, that it is not active and does not include the participation/membership of the Director of Affirmative Action. E.0, #1-84 applies to contracts over $100,000.00, which excludes African-American small businesses from the protection and support of the Executive Order. 35ECONOMIC DEVELOPMENT - Ina period of concern regarding the construction of middle income housing, there is minimal participation or inclusion of African-American entrepreneurs. - Finally, in a County which is comprised of many corporations which have the potential for providing business opportunities for African-American entrepreneurs, there has been minimal leadership directed to the creation of an industry/government initiative or partnerships which will promote and expand access for African-American entrepreneurs. ‘The Economic Development Committee in addressing the overall economic conditions of African Americans found serious gaps in available data. Although data concerning the African-American share of the G.N.P. of Westchester County is not readily available, there are indicators that the African-American consumer represents a profitable market These indicators do not, however, translate into economic opportunities, jobs, training, retraining or promotions for African Americans. The Westchester 2000 Committee on Economic Development, in their report, makes only a passing reference to African Americans and other persons of color. This reference identified these groups as the presumed labor force of the year 2000 and talks about the need for training and retraining but does not define who is to do this training nor who will finance the training. ‘The Report does not make recommendations on how to improve the economics nor does it discuss the need to formulate strategies for inclusion of these groups in the overall economic strategy of Westchester County. 36ECONOMIC DEVELOPMENT Racial discrimination in the labor market results in severe consequences for African-American entrepreneurship. Primary among these consequences are low-income and marginal, (and or inferior) human capital acquisition and accumulation. Entrepreneurship usually begins with the accumulation of assets, which are converted to capital to initiate a business venture or serve as collateral or leverage sufficient enough to attract additional capital. Unfortunately, within the African-American communities the pooling and accumulation of assets are virtually non-existent. For the African-American labor market, discrimination has generated such low wages that the amount and types of assets acquired are not readily accepted as collateral by private lending institutions. Thus the amount and types of financing needed are not made readily available to African-American businesses. The Committee recognizes that while the County Executive does not control lending institutions, the Committee does recognize that government initiatives that combat racial discrimination in the labor market and business sphere will, likewise, directly impact on the development and sustained growth of African-American business enterprises. Part of this initiative would be to recognize the role that African-American banks would play in assisting to create this pool of capital that is so necessary to the African-American business community. 37ECONOMIC DEVELOPMENT The Economic Development Committee of AAAB perceives that economic development for African Americans in Westchester County represents an opportunity to promote and support an entrepreneurial value system and class that can create jobs, contribute to the growth of the business community and participate in the development of policy and strategic planning for the twenty-first century. The Committee recognizes that there exists in Westchester County a reservoir of talented African Americans who are business owners, business management trained individuals, corporate executives and government officials who have not been formally surveyed or quantified by Westchester County government. The County has not used this resource as the base of a larger pool of talent to fill vacancies as they occur on the various Commissions, decision making boards and advisory boards--be they paid or unpaid. Screening committees and search committees are conspicuous by their lack of African-American members. Attempts by community-based organizations, Pan Hellenic, Civic and ministerial groups to provide the County with names of individuals with the skills and willingness to serve in any of these categories, have met with little success. The importance of African Americans serving in these roles is significant to- County government as well as to the African-American community. 38ECONOMIC DEVELOPMENT They serve as role models for young African Americans and contribute to the stability of African-American neighborhoods. Westchester County must establish a clear rationale for its involvement in the African-American community; make a commitment to ensure a set of policies that promote African-American access to business opportunity; formulate and introduce an initiative with the banking and investment community to provide capital formation mechanisms and/or venture capital financing for African-American entrepreneurs; utilize African-Americans banks and firms; enforce the existing Executive Order with emphasis on the provisions published and disseminate information regarding contracts, goods and services utilized by County government; - maximize representation of African Americans on boards and commissions; and increase representation in management level staff positions across the spectrum of County jobs from the Courts to mental health; and institute the collection of data and analysis of business trends for the purpose of initiating policy changes which would enhance the deliberate growth of African-American businesses. RECOMMENDATIONS I. Policy Development The County should: 1) Develop a policy statement which establishes a clear, concise rationale that clearly defines 39ECONOMIC DEVELOPMENT westchester County's involvement in African-American business development. For the most part, African Americans have been unsuccessful in gaining access to the free enterprise market. with the establishment of a rationale for African-American participation, Westchester County government could intervene on their behalf to provide leadership directed toward the creation of an industry/government initiative or partnership which would promote and expand access for African-American entrepreneurs. It would also include: (a) The development of African American businesses; assist in the expansion of existing businesses and provide the necessary technical assistance, tax and financial incentives to ensure their success. (b) Capital formation/accumulation - African Americans have earning power far below that of their White counterparts in Westchester County which limits their ability to accumulate and access capital. ‘The County must, therefore, use its considerable influence with lending institutions to encourage them to make loans to African-American businesses. The County should also i evaluate those lenders that hold the County dollars to ensure that their lending policies are encouraging of African-American business development through loans and lines of credit. Private sector initiatives such as MESBICS must also be encouraged. (c) Business trends development for the express purpose of initiating policy changes to enhance the deliberate growth of African-American business. If the market changes, these businesses must have access to ‘information that allows them to make the business changes necessary to effectively continue to compete. 2) Pass legislation that places contract compliance under the authority of the Office of Affirmative Action, thus giving 40ECONOMIC DEVELOPMENT this office the authority to (a) require all County sponsored agencies to prepare and submit goals/plans for utilization of businesses owned by persons of color or women. These program requirements would include, but not be limited to: (a) Agency goals for participation by African-American businesses as a percent of aggregate agency expenditures. (b) A description of agency procedures which will be implemented and agency actions taken to comply with the requirements of the law. (c) A list of agency/department personnel responsible for implementation of the law; their titles, description of their responsibilities and the percentage of their time to be allocated to implementation of the law. 3) Establish a central monitoring system that reviews Procurement practices, enhances each County department's affirmative action efforts, and gives strength to the overall Affirmative Action/Contract Compliance process. The monitoring system would provide standards and criteria for establishing goal requirements and procedures for evaluating compliance and resolving disputes related to participation by African-Americans in County contracts. (4) Establish a procedure that requires prime contractors to submit utilization plans for achieving affirmative action goals. (5) Revise the Executive Order #1-84; amended in 1987: t (long term goal to pass legislation as recommended). aLECONOMIC DEVELOPMENT (a) Generate annual affirmative action goals by every agency. (b) Apply these goals to contracts of $25,000 and over. (c) Achieve the prompt completion of the Minority Business Directory. (a) Publish information regarding contracts, good and services that are purchased/utilized by the County government in a newsletter or some regularly disseminated periodical. (6) Revitalize the Interagency Purchasing Council. II. Programmatic Design This second area of emphasis must also reflect a clearly articulated set of goals and objectives. Without such a clear rationale, programs and strategies for their implementation are likely to be short sighted and yield less than impressive results. "These programs should be implemented because they are consistent with the County's overall economic development strategy." (1) If business assistance programs are to significantly assist African-American firms, programs must be designed to reflect the diversity of the varying stages of business development. (2) There is a need for the County to take the initiative with the banking and investment community to provide capital and/or a venture capital mechanism for African-American entrepreneurs. 42Cf ECONOMIC DEVELOPMENT (3) Westchester County government must explore and employ methods to utilize African-American banks even though these institutions may be located outside of Westchester County. (4) Explore strategy for providing bonding assistance to African-American entrepreneurs; and reestablish a ceiling on those contracts that require bonding from $15,000 to $50,000. (5) Establish business internships with County government agencies for African-American youth. (6) Reaffirm commitment to the Westchester Minority Commerce Association and broaden the scope of the services to enable that agency to provide needed services to their members and other businesses. (7) Appoint African Americans to all Advisory Boards which have policy and decision making responsibility for economic development i.e., IDA Boards. 43a (2) (3) (4) ECONOMIC DEVELOPMENT REFERENCES Minority Business Development and Economic Development Policy in New York: Implications for Black Entrepreneurs and Communities, October, 1988 Census '80, November 1982 - No. 2 Information Report. Population Changes by Ages, Sex and Race, Westchester County, 1970-1980 Social and Economic Findings of the Census of Westchester County, 1980. Westchester County Department of Planning, 1985 Survey Report - Westchester Coalition/Mercy College, Minority Business Study, 1989 44AFRICAN-AMERICAN ADVISORY BOARD HOUSING COMMITTEE HOUSING COMMITTEE MEMBERS Mr. J. T. Childs, Jr. chairman Ms. Dorothy A. Brincefield Reverend Luther A. Evans Ms. Leslie A. Mardenborough Committee staff support provided by Ms. Miriam Buhl, Housing Counselor, Westchester Residential Opportunities, Inc. 45HOUSING INTRODUCTION Federally funded housing programs that emerged in the 1960's during the Johnson administration were important in helping to solve the housing problems for African Americans. Upwards of 50 percent of African Americans lived in public housing or subsidized units. When, during the Carter and Reagan administrations these programs were substantially defunded, African Americans were greatly impacted. The loss of these funds caused housing starts and needed rehabilitation of existing units to cease. In 1978, a blue ribbon panel, "Special Advisory Committee on County Housing Policy," was appointed by Mr. Andrew P. O'Rourke, then Chairperson of the County Board of Legislators, to study the need for a housing policy designed to stimulate increased production of additional housing units; to promote inter-municipal cooperation to ensure orderly growth, balanced community preservation and reinforcement of the existing and planned infrastructure. The report concluded that if the existing blighted and deteriorated housing was not rehabilitated and approximately 2,000 units of new housing units were not built annually over the next decade, Westchester would experience a significant housing shortage. In that same year, Alfred B. Delbello as County Executive, submitted a Westchester County Housing Implementation Plan that | described the activities that the County would undertake to 46HOUSING foster the development of 50,000 units to be added to the existing housing stock. Between 1980 - 1987, major events occurred that made an impact on this "proposed plan," which requires a new set of implementation techniques. Rental Housing Stock In 1980, one half of the housing units in Westchester County were rental units (146,249); by 1985, one fourth, or 26,522 units, had been converted to condo or cooperative apartments; at the same time, new construction was significantly reduced. Federal funds for new construction were limited; funding that was targeted to low/moderate families, many of whom were African Americans. This left only two construction programs on the federal level to finance housing, and they were for the disabled. ‘he other trend that impacted rental units was the builders’ realization that building commercial or luxury housing was more profitable, since they argued, rent controls might be put in place for new rental buildings, making them a risky investment. With the development of these commercial projects, the County ree increase of 61,300 persons between 1980 experienced a workfo: and 1988, causing a swell in the market for housing units, thus, contributing to the rise in housing prices. Employers of lower job categories report problems in finding help (many of whom are African Americans) for these positions largely because a7HOUSING this lower income level person cannot afford to live in the available housing. Tax reform and other federal tax laws have also negatively impacted housing since 1980. Rental owners and investors in real estate development projects are no longer able to benefit from accelerated depreciation. Interest rates were so high at the beginning of this period that it was unreasonable to expect new starts. They effected both construction financing and purchase mortgages. By 1988, the cost of housing had accelerated to such startling proportions that it had clearly outstripped income increases, so that by 1989, homelessness was a more serious problem added to the concern for affordable housing. COMMITTEE REPORT Low median income, limited education, drug abuse, unemployment, discrimination, and homelessness plague Westchester County's people and its African-American residents in particular. In some areas of the County, housing problems for African Americans have reached a point of crisis. Local community organizations and public assistance resources are being pushed beyond their capacity to help. The final price to be paid for this housing shortage will be--in unemployment, increased need for social services, heavy drug use, crime, and loss of human , lives--enormous, even when compared to the $64 million we will pay to house our homeless this year alone. 48HOUSING As ten Westchester suburbs made it to a list of america's 75 costliest suburbs in October 1988 the homeless population in Westchester County soared to almost 5,000. Many of the county's residents are having trouble keeping up with the escalation of home prices and rental costs. African Americans, who generally earn less than the typical County resident, are particularly effected. (See Tables 1, 2, 3 and 4) Although the Westchester County Department of Social Services (DSS) does not maintain statistics on the homeless by race, the Coalition for the Homeless of Westchester's (CHOW) survey of three programs serving the homeless indicates that the majority of the clientele (60 - 70%) are African American. Although African Americans comprise 12% of the total County population, more than 50% of the Westchester County DSS recipients are African-Americans. Some other statistics that are relevant to this report ar ~ 36% of African-American residents are likely to finish high school while the County rate is over 75%. ~ 18.3% of African Americans in Westchester County have incomes below the poverty level, compared to 5.6% of the entire County. Many African Americans who are above the poverty line are dangerously close to it. ~ 84% of African Americans are likely to rent, while the typical County resident, 45% of whom are very likely to purchase a home. 49TABLE 1 IMPOVERISHED HOUSEHOLDERS, BY AGE WESTCHESTER COUNTY, 1980 Family Householders Aged 15 ~ 64 Aged 65 & Over Non-Family Householders Aged 15 - 64 Aged 65 & Over Below Poverty Level Io Fi 229,159 191,442 37,717 78,191 48,051 30,140 Source: U.S. Bureau of the Census and Westchester County Department of Planning. wcoP 10/85 TABLE 2 IMPOVERISHED FAMILIES, BY PRESENCE OF RELATED OMTLOREN rors YESTCHESTER COUNTY, 1980 a Lie 229,199 wat Related Chateren 1134303 6a 6- 17 10,908 23,660 10,655 115,056 veor 10/85, 50TABLE 3 IMPOVERISHED PERSON WESTCHESTER CONT? ie Persons Iotel Under 55 640,773 55 to 59 52,445 60 to 64 43,577 65 & Over 106,855 Source: 1980 Census and Westchester County Department of Planning, woop 10/85 TABLE 4 IMPOVERISHED PERSONS, BY RACE AND SPANISH ORIGIN WESTCHESTER COUNTY, 1980 Persons Number Percent Total 843,650 59,896 mM White 716,116 36,959 5.2 Black 99,260 19,415 19.6 Native American® 932 77 19.0 Asians & Pacific Islanders 16,128 590 37 [{}~———_—_———___| Spanish Origin** 44,006 7,936 18.0 ‘Includes American Indiens, Eskimos, end Aleutien **Spanish Origin persons may be of any race. Source: 1980 Census and Westchester County Department of Planning, WOOP 10/85 stHOUSING Economically, then, Westchester's African Americans are at a severe disadvantage when grappling with high housing costs. (See Figures 1 and 2) Despite a vacancy rate of less than one percent and an obvious, urgent need for affordable housing, the available housing in Westchester might seem to have been built for a different world. New construction tends toward high-priced condominiums and single-family homes, the median sale prices of which have soared to $200,000 and $301,650, respectively. Yet the County's median household income reported for 1988 is only $39,548. A family earning this income can only qualify for a house which costs $100,000, roughly one-third the cost of the median sale price (See Figures 3, 4 and 5). Rental prices have climbed to high levels as well. The average advertised rents in March 1989 were $605 for a studio apartment, $763 for a one-bedroom unit, $941 for two bedrooms, $1,181 for three bedrooms, and $1,456 for four bedrooms. Cooperative and condominium conversions over the last ten years have claimed over 34,000 rental units in the County, resulting in a 40% reduction in rental apartments in buildings of five or more units, from 82,000 to 48,000. As a result of the increasing price of a home or apartment in Westchester, there is a decreasing ability of African Americans to afford them. There has also been a drastic change in the subsidized housing sector. Westchester County's total supply of subsidized units have effectively been frozen, largely 52FIGURE 1 MEAN FAMILY INCOME BY RACE AND BY SPANISH ORIGIN WESTCHESTER COUNTY, 1989 DOLLARS IN THOUSANDS 50- BLL FAMILIES: $34,354 20| ° WHITE, NATIVE ASIAN= SPANISH AMERICAN PACIFIC ‘ORIGIN ISLANDER weor 5/63 “ARE DISTRIBUTED AMONG ALL RACIAL CATAGORIES SHOWN HOUSING NEEDS FOR WESTCHESTER COUNTY In recognition of the pressing need for housing, and ites integral relation- ship to the well-being of Westchester, the legislative and executive branches of county government formulated and adopted a housing policy tation plan. These correspond to the housing the results of the 1980 Census. da housing inplenen ede and trends a docutesreg for additional units to accomodate ween 1970 and 1980 brought an ieee ite a loss in population, Ones woe it Housing production dorie 1,2" The most evident housing need is growing number of households, The span ben of nearly 9% in the number of household two-person households became the most pre ng the same period was not sufficient to meet the need. | . tween households and Rousing uni, . There is at present « mismatch Bee TT Natt oF all Teetoroued yt fonal smaller unite are Fequired aetloa ee Talos tone tefet net average household size is 2.8 pe have six or more rooms, Hence, needs stemming from those trends that, ™ hold size. 33 | | {BY RACE AND SPANISH ORIGIN, WESTCHESTER COUNTY, 1980 PERCENT 30r- WHITE — 20 MEAN $36,283 rok BUACK = cy MEAN $10,726 FIGURE 2 FAMILY INCOME DISTRIBUTION 20} AMERICAN INDIAN MEAN $28,164 01 ol 30r ASIAN = PACIFIC 20| ISLANDER MEAN $40,841 40) T ol 30) 29) SPANISH ORIGIN MEAN $21,034 0) "Spanish origin 9 Income for 1970 WOOP rovesFIGURE 3 MEDIAN SALE PRICE REQUIRED Single Family $320,000 $114,647 Condominiums $190,000 $ 68,072 Cooperatives $108,000 $ 42,950 Figures contributed by Westchester Housing Fund; 1989 58FIGURE 4 WHO IS PRICED OUT OF ‘THE HOUSING MARKET? Income Range: $25,000 - $35,000 Entry-level management Senior administrative staff Senior clerical and secretarial Teachers Senior uniformed services Retired employees and middle managers o00000 Income Range: $15,000 - $25,000 Clerical Secretarial Senior maintenance Semi-skilled workers Administrative staff Hospital staff and nurses Uniformed services Retired workers Entry-level teachers Retail clerks | | 0000000000 Income Range: Under 15,000 Entry-level clerical Entry-level secretarial Maintenance staff Other skilled workers Retired workers Entry-level public employees Public assistance recipients Homeless 00000000 Figures contributed by permission from the Westchester Housing Fund; 1989 56FIGURE 5 WHAT THEY CAN AFFORD 1988 AFFORDABLE AFFORDABLE INCOME HOUSE MONTHLY RENTAL Median Income, $41,312, $116,981 $873 Moderate Income $33,529 $ 93,750 $699 Low Income $20,956 $ 58,750 $437 Figures contributed by perm: Fi See isas Y permission from the Westchester Housing 57HOUSING as a result of massive Federal budget cuts since 1981, while the pool of applicants swells rapidly. Today, it is not unusual to find that a public housing agency or a Section 8 building has a waiting list. Larry Salley, Deputy Commissioner, Westchester County Department of Planning, reported on the various changes in the housing situation in Westchester County. In that report, Mr. Salley's breakdown indicated 10,087 units in Westchester County whose mortgages are subject to buy-outs after twenty years and 5,737 units of public housing potentially for sale bringing the total number of threatened units to 15,824. In a study released in March, 1990, 6,106 subsidized apartments are at risk this year and 13,624 would be at risk in 1991 if the owners of those units decide to exercise all of their options and withdraw from the federal subsidy programs. It is apparent that African Americans cannot be fully protected by fair housing laws to secure the housing of their choice because the supply of affordable housing is inadequate. High prices and short supply, limit if not reverse, attempts to fully integrate Westchester County both economically and racially. Data submitted by William Jones, of Housing and Neighborhood Development Institute (HANDI), identified the communities where African Americans are most heavily concentrated in Westchester. It is no coincidence that these communities remain the least affluent, as Karl Bertrand of CHOW writes in his testimony: 58HOUSING ‘Westchester appears to have accepted residential segregation by class and race for years. Much of the County is divided into areas that were either primarily affluent and White, or largely poor and non-white." Bertrand warns that the affordable housing in even these areas may not be protected, citing the trend of "affluent people, often Whites,...spilling over from the incredibly expensive housing market in Manhattan into the areas which have traditionally provided housing for the poor. It is only in the courts that African Americans’ rights to enjoy the same communities as everyone else, are defended." Even the traditionally affordable community of Yonkers, where Bertrand sees the clearest linkage of racial and economic discrimination, has mounted considerable opposition against Judge Leonard B. Sand's decision ordering desegregation of that city. White Plains, for example, is one of the most affluent areas of the County, and “even its own residents, forced out by evictions, rent increases or fire, find they can no longer afford to live there," according to Blossom Blum, Executive Director of Westchester Residential Opportunities, Inc. (WRO). The exodus of low and moderate income people from Westchester will certainly frustrate the efforts of local businesses, including major corporations, to fill positions with qualified employees. (see table 5 and Figures 6 and 7.) As a result, the economic health of our apparently prosperous community is in jeopardy. 59TABLE 5 COMPOSITION OF POPULATION BY RACE WESTCHESTER COUNTY, 1970 and 1980 1970 Population | 1960 Populetion | Population Change 1970 = 1980 Number] Percent | Number | Percent [—Nonber | Percent TOTAL 994,104 | 100.9 | 866,599 100.0 | -27,505] -3.1 White 802,722} 89.8 | 729,831] 84.2 | -72,891| -9.1 Black 85,041] 9.5 | 104,815] 12.1 | 19,774] 23.3 Asian/Pacific Islanders 4,439] 0.5 15,126 1.8 | 10,687} * Other 1,902] 0.2 16,827 19 | 14,925] + *See text for explanation and comment. Source: U.S. Bureau of the Census and Westchester County Department of Planning. 60 WCOP 10/85FIGURE 6 WESTCHESTER cou) POPULATION AND POPULATION TRENDS 1960 - 2010 st Theoenioe aaa 204,106 280 44,900 200) 750 700 ——_¥a, coneus. ‘wom WoOP ESTATE e80 ~ ~ WODP PROJECTIONS 8001 0 }0~«dO7O~*«S WS WWBE VeeO 2000-2010 weor 10/86 = The composition of Westchester's population has changed elong with its size. (See Table 5). The number of Whites dropped by more than 9% from 1970 to 1980, but Whites remain the largest group at 84.2% of the totel population. Blacks increased both in number end as 8 proportion of the population, up more than 23%. The number of persons in this category in 1980 was 104,140, or 12% of the total population. 61FIGURE 7 WHAT IF NOTHING IS DONE? © Exodus of middle class © Labor shortage, excessive competition for skills © Economic stagnation © Office glut continues © Construction industry hurt © Municipal costs and taxes accelerate © Polarized community Figure 7 contributed by the Westchester Housing Fund; 1989 62HOUSING Entry level corporate positions and traditional service positions upon which all communities depend (police, fire, ambulance personnel, postal employees, employment staff for local merchants, barbers, beauticians, lawn maintenance, etc.) cannot afford to live in Westchester County. Buy-outs, co-op conversions, high rental and purchase prices, increasing competition with wealthy newcomers, and a frozen--indeed, diminishing--supply of public and assisted housing have all contributed to the homeless problem in Westchester County, and African Americans constitute the majority of this population. Additionally, the disproportionate number of African Americans at or near the poverty level means that a great number are at risk of losing their housing. The economic handicap borne by African Americans, compounded by racial discrimination, creates a hindrance in locating and maintaining affordable housing in Westchester County. he search is particularly frustrating for those carrying the additional stigma of being homeless. Landlords, neighbors, and realtors resist renting to African Americans who are homeless, and many African-American homeless feel they are not able treatment from the DSS. It is vitally receiving equit: important that DSS examine their motel Placement records to identify any possible discrimination. Such an effort will help build a bridge to those in need and help dilute existing feelings of mistrust.HOUSING Conditions of Homelessness ‘The AAAB Housing Committee focused on Westchester's homeless Population, the majority of whom are African American, in an effort to represent all aspects of the County's housing situation. This portion of the report will examine the difficulties facing Westchester's homeless in finding and maintaining affordable housing. Particular attention will be given to the DSS and the Section 8 Federal Housing Assistance Program, the two components most necessary to eliminate homelessness, and in our view, key obstacles to achieving that objective. The most visible and acute symptom of Westchester's severe housing shortage is the county's homeless population. (See Figures 8 and 9.) Westchester's homeless residents are “temporarily warehoused" in hotels, motels, and makeshift | shelters throughout the lower regions of New York State by the Oe —_—— but the residents voice the same concerns wherever they are. The families interviewed at the third AAAB hearing expressed frustration, defeat, and confusion about their status as homeless People. The residents of the emergency housing units usually report the same reasons for having become homeless: fire, : eviction due to rent increases without the protection of a lease, 64FIGURE 8 NUMBER OF HOMELESS FAMILIES, CHILDREN AND SINGLES August. 1990 There were 1138 adults in the 1023 featt, ca ed for August. There were 2032 children tn'these fartler renee, Phere adults in the 1382 Singles cases reported, ‘tiroecee’ a toral persons were reported as homeless in Westchester Couscy during © ne sonth of fe were 1426 of 4596 fhe month. The cases indicated below represent the c ve total of open homeless cases during the entire month. ee ones ee TOTAL HOMELESS FAMILIES (ADC cases and 1023 Families 2032 Children intact HR families) Total Mocell Couat 36 Families 1263 Children (Westchester County Motels) (C402 Fant lies _763 Children) (Out-of -County" Motels) (C232 Fanilies 500 Children) Total Emergency Housing Units 180 Families 403 Children Total Family Facilities 99 Families 152 Children | (Providence House, Samaritan House, Northern Westchester, My Sister's Place, Mt. Kisco Residence, Job“s Refuge, Vernon Plaza, WESTHELP Total Friends or Relatives 8 Fantlies _12 Children Total Other Placements 102 Families _202 Children (No placements) (96 Families 192 Children) (Refused) (“6 Families — 10 Children) TOTAL HOMELESS SINGLES AND CHILDLESS COUPLES 1382 Total Cases in Shelters 316 Total Cases in Motels AOL (Cases in Westchester Motels (166) (Cases in "Out-of-County” Motels) (7238) Total Cases in Emergency Housing Apartments 39 Total Cases with Friends or Relatives oe Total Cases other Placements a (No placements) (am (Refused) » s by placement type te reflective of the last ducing the month. The distribution of cf : placement for any open homeless prepared by Westch. Departnent of Soci, September 18, 1990 ester County al Services 65FIGURE 9 DISTRICT OFFICE Mt. VERNON | NEW ROCHELLE | PORT cHESTER | _PEEKSKILL cat taree ¥ i ra TOTAL HOMELESS FAMILIES | 269 509 edi it 49 108 i iH i fea rOTAL HOMELESS SINGLES RRAHEHNHBIMNH 23 HIGH 7; Panta i sSTCHESTER couNTY MoTeLs | 74147 6d id 1 3d id 4 29 1 our oF couNTY MOTELS) hora notes court J ad ERGENCY HOUSING UNITS FAMILY FACILITIES® buevrers «+ FRIENDS OR RELATIVES IER_PLACEMENTS*** DISTRICT OFFICE [POTAL HOMELESS FamiLtes | 107 194 5: 2 a z hota, aoweiess sivcues RURIEIEIOT te sear ae FY 1 srewesren coum wre | ell iod_sd_rd sho ud dd 2 q mcm [ia foetal Tf | fmommont balal dufloladed dd dal, Sea ae i ed 20 of sf 4 4 di four rcnrese | 1 df oe 1. et oes ee fi 1 fu emarn ld dad d i ld retry (mt | dd dad ddd dddd Lili Mt. Kisco Residence, Jobs Refuge, Vernon Plaza, WESTHELP ** Includes Assessment Center *#* No placements, Refused. 66HOUSING and particularly for the younger homeless families, doubling up with relatives until tension became too great to bear- As the number grows, it becomes more apparent that almost no one is immune from homelessness. The attendees at two of the AAAB hearings included college graduates who were homeless. They had been employed in apparently secure positions and had lived in modest but stable conditions until something happened: a husband beat his wife, and she left with their children; someone lost his or her job due to prolonged illness; apartments converted to condo/co-ops; a two-family house that was sold, etc. The lists of homeless clientele at housing agencies such as WRO include teachers, bank tellers, engineers, construction workers, and even DSS caseworkers. Many are veterans of the U.S. Armed Forces. There are many problems inherent in living at the motels and shelters. The buildings were not constructed with the intention of housing people for extended periods, yet for some of the county's homeless, they have effectively become permanent housing. It is not unusual to hear of someone being homeless for two or three years. But when a hotel is “home,” even one week can seem like an eternity, particularly when there are no cooking facilities (cooking is not permitted in the motels) and several people are assigned to one room. The substance abuse rate among homeless adults is in excess of 50%. Depression is a common problem among the homeless- 67HOUSING According to outreach workers at the motels, many residents may not keep appointments unless absolutely necessary. Some of the facilities used by the DSS to house the homeless are as far as seventy miles from the families' hometown, which poses an impediment to efforts to later relocate to the town of origin. Many parents attempt to maintain some degree of stability in their children's lives by enrolling them in the original schools only to have the children commute up to two hours each way. The homeless students cannot engage in extra-curricular activities or visit with friends without jeopardizing their transportation home. Other homeless children are enrolled in the school nearest the emergency housing, but this arrangement may lead to difficulty adjusting to an unfamiliar environment as often as once every three months. All of the homeless children are vulnerable to ridicule from other children. The lack of cooking facilities at the emergency housing units forces homeless families to improvise with what is available. Some units have refrigerators, but toilet tanks are often used to cool additional items such as beverages. The only hot meals homeless families eat are usually at local fast-food restaurants. It is virtually impossible to maintain adequate nutrition under these circumstances. Children become sick or perform poorly in school as a result. 68HOUSING Most homeless families are eligible for section 8 Federal Housing Assistance, which, when combined with the DSS shelter allowance, will pay the rent on an approved unit. However, there are a myriad of difficulties in accomplishing the task of locating and securing an "approved" unit. Section 8 certificates are scarce, and there are "priority" waiting lists for certificates for homeless families of up to two years in the larger municipalities. The DSS case workers involved in overseeing the process are often uninformed and overworked. Advertised apartment rents average 30% greater than Section 8's allowable limits and landlords are unwilling to participate in the program due to the extensive paperwork and delays involved. The majority of the Section 8 offices rely upon one inspector, contracted through WESTHAB, to approve the units. This delays inspection an average i of 10 to 15 days and the payment on the unit usually does not commence until a month after the family has located the apartment. Section 8 and DSS have a reputation in real estate circles for creating massive amounts of paperwork and delaying a process which ideally should conclude in a matter of days. Additionally, no two Section 8 offices are alike, as they have individual administrative plans for the municipality they serve. this creates confusion among caseworkers and housing counselors working with the offices, not to mention the clients the offices serve. 69HOUSING A voucher, another subsidy alternative from some of the Section 8 offices, allows the tenant to exceed the rent ceiling provided he or she pays the additional cost. (Many certificate holders do this surreptitiously--sometimes at the suggestion of a Section 8 administrator--in order to secure an apartment, at the risk of losing their subsidy altogether if the information becomes public.) The voucher is stated by some to be part of the answer to Westchester County's housing problem, and some advocates urge more municipalities to participate in the program. Indeed, HUD may issue only vouchers in the future because their flexibility increases a tenant's chances of securing a unit. Their usefulness is severely limited, however, by two issues: first, a homeless tenant is very likely to overextend himself or herself financially by drawing from funds which normally would be reserved for food and clothing; and, second, a voucher program is only as successful as the amount of housing available to the tenant. Increasing the amount of rent a tenant may pay does not increase the supply of available affordable housing, and Westchester County is still left with a vacancy rate of less than one percent. A deeply disturbing trend amidst the homeless crisis, and one which affects African Americans proud of their work ethic and trying to gain equal economic ground, is the dependence upon Public assistance, or welfare. Unlike Section 8, a program which 70HOUSING uses income guidelines solely as a gauge for initial eligibility. the public assistance regulations, as they apply to homeless and at-risk families, are self-defeating. Once placed in the unit, @ client receiving Section 8 assistance can work to earn more income on the condition that the tenant contribute 30% of his or her income toward the rent. The tenant's share rises with the income, and Section 8's portion diminishes until 30% of the tenant's income equals the rent. Then, as the client is ready to pay the rent, Section 8 is dropped. Public Assistance, on the other hand, is a "safety net" that many people are forced to depend upon, as the total grant usually includes Medicaid and food stamps. Given the housing market in Westchester County and the lack of jobs paying what is required to afford such units, many homeless or at-risk families find it makes more sense to go on public assistance, thereby ensuring health care and food for their children, as well as eligibility for Section 8, rather, for example, than attempt to live on a salary afforded bank tellers or cashiers. Such wages, when calculated by a homeless counselor to budget a rent allotment, may leave the client with a rent allowance of $365 for two bedrooms--and that may be 50% or more of the client's salary his paradox is manifest in the account of one homeless woman, a college graduate, attending an AAAB hearing, who was instructed to quit her job in order to qualify for pss to pay the 1HOUSING uses income guidelines solely as a gauge for initial eligibility, the public assistance regulations, as they apply to homeless and at-risk families, are self-defeating. Once placed in the unit, @ client receiving Section 8 assistance can work to earn more income on the condition that the tenant contribute 30% of his or her income toward the rent. The tenant's share rises with the income, and Section 8's portion diminishes until 30% of the tenant's income equals the rent. Then, as the client is ready to pay the rent, Section 8 is dropped. Public Assistance, on the other hand, is a "safety net" that many people are forced to depend upon, as the total grant usually includes Medicaid and food stamps. Given the housing market in Westchester County and the lack of jobs paying what is required to afford such units, many homeless or at-risk families find it makes more sense to go on public assistance, thereby ensuring health care and food for their children, as well as eligibility for Section 8, rather, for example, than attempt to live on a salary afforded bank tellers or cashiers. Such wages, when calculated by a homeless counselor to budget a rent allotment, may leave the client with a rent allowance of $365 for two bedrooms--and that may be 50% or more of the client's salary. his paradox is manifest in the account of one homeless woman, a college graduate, attending an AAAS hearing, who was instructed to quit her job in order to qualify for pss to pay the nHOUSING security on a new apartment. This bodes ill for the economic future of African Americans in the County. The needs of the working poor go ignored. DSS will not assist the at-risk or homeless family if they are working and earn only several more dollars than the DSS limits allow. Indeed, a homeless family with an earned income must contribute a huge portion, if not all of the money, to pay for the hotel bill, so it becomes impossible to save. This family may not be able to afford the rents in Westchester. They may be homeless indefinitely. Other DSS regulations, as interpreted by caseworkers, include a prohibition on homeless referrals for Section 8 unless the family is homeless. This holds true even if the family, unable to pay the rent for the current unit, is being evicted Rather than save the unit the clients have, DSS caseworkers frequently address the issue by spending considerably more money to house the family in a hotel than would be necessary if the homeless referral were more explicitly open to families in danger of being homeless. RECOMMENDATIONS The African-American Advisory Board Housing Committee proposes the following recommendations to respond to the housing crisis and its effects on Westchester County's African-American population. 72HOUSING - advocacy/Increase the number of affordable units the homeless need Westchester County government to participate more actively in their fight for housing, rather than simply continue to pay hotel bills. The $53 million spent in 1989 by the County to maintain the present temporary facilities clearly would be better and more efficiently used if directed toward construction of permanent housing to improve the quality of life for the victims of homelessness. To stimulate new housing starts the County should redirect Department of Social Service dollars from housing allowance funds to develop and implement: a) Increased infrastructure financing. b) Guaranteed construction loan funds for low income housing limits or 20/80 projects. ¢) Legislation that all new housing units in excess of 10 units will have 20% low income units. The AAAB recognizes that the County has not been empowered to construct housing based on restrictions imposed by state law. ‘A 1989 amendment to the State constitution would allow counties to construct housing units within their jurisdictions. This legislation is scheduled to go before the next legislative session for passing and then to referendum. ‘The County Executive should continue to lobby the legislature for passage in the next session and mount a strong public education effort to ensure an affirmative vote when it comes up for referendum. 73HOUSING The Homeless Are People Too While we may have to accept that there will, from time to time, be citizens who are homeless, every effort must be made to reduce the number/length of time African-American citizens suffer this indignity. our efforts should not result in institutionalizing homelessness, but rather should be in developing public policy that for the short-term makes life for the homeless more humane and tolerable; the long-term goal, the constructing of large numbers of low income/affordable housing units. The County must work with the State Division on Housing to assist the State in streamlining its procedures to facilitate more effective development of housing. On a larger scale, Westchester County must continue to press for acceptance of such project concepts as WestHelp, which is an example of a transitional facility designed to reintroduce homeless families to permanent housing. Transitional housing projects are usually subjected to strong community opposition which results in serious delays in the development of these much needed housing units. Such opposition may be based on race as a means of exclusion. II. Housing Discrimination The County should develop and implement a "fair share plan" - for providing affordable housing with strong incentives for local communities to meet the targets set by the County. The County 74HOUSING should request of the State legislature the ability to impose 4 surcharge to be added to the local property tax of those communities that fail to participate on a “fair share" basis. The basis for determining the number and size of housing units required could be taken from the housing policy being updated by the County Board of Legislators. This update is being prepared by the Center for Urban Research and Policy (Rutgers University). III. Develop a Housing Crisis Team Support System There is a need to develop and provide an integrated training program for the Department of Social Service staff at the highest level above entry level, i.e., district supervisor and district manager to make this staff aware of all programs and services that are available to homeless people and other clients and to strategize implementation procedures to ensure that they are accessible to these clients. Then DSS staff should "sit with" Westchester County Section 8 staff to better understand the Section 8 program and how it impacts their client population; incorporate this information into their training and orientation of new DSS caseworkers and clients, and other social worker staff that interacts with clients and set up a procedure to coordinate the efforts and interrelated workings of these two departments. the pepartment of Social Services and the Planning should be the lead agencies to develop formalized structure to facilitate oryHOUSING these activities. There is a need for an annual or semi-annual work meeting or conference of DSS managers, Section 8 administrators at both the County level and including the 16 local Section 8 office to exchange and update information and to review procedures and policies. The conference/meeting would be initiated by the joint effects of the Westchester County Department of Social Services and Planning. 76a (2) a (4) (5) (6) (7) (8) (9) HOUSING REFERENCES Social and Economic Findings of the Census Westchester County, 1980; Westchester Department of Planning Falling Behind: In Examination of Critical Social Programs and Policies in New York State, Implications for the Black Community, Nov. 1987 Assisted Housing in Westchester; Fourth Annual Edition, 1988 Article - The Effect of Buy-Outs of Assisted Housing and Possible Conversion of Low-Income Public Housing Article - Housing and Development Reporter Article - Federally Subsidized Housing at Risk - New York Times; Sunday, April 1, 1990 Article - Zoning for Affordable Housing, April, 1989 "Report Concerning A Housing Policy," Special Advisory Committee on Housing Policy, October 23, 1978 Excerpts from Westchester Housing Fund Fact Sheet, 1989 7AFRICAN-AMERICAN ADVISORY BOARD CRIMINAL JUSTICE COMMITTEE COMMITTEE MEMBERS Ms. Pearl C. Quarles Co-Chairperson Mr. Alex S. Toone Co-Chairperson Ms. Cheryl Lynn Brannan Ms. Cheryl Davenport-Dozier Ms. Norma V. Mack 78CRIMINAL JUSTICE INTRODUCTION The Criminal Justice System is big business. For fiscal year 1990-1991, the Public Safety, Correction and Courts share of the Westchester County Expense Budget is $93,612,675 or 9.3% of the total budget. Sixty-five percent (65%) of this amount represents the allocation to the Department of Correction or $61,000,000. The Department of Correction is Westchester County's secure custodial center made up of the Penitentiary, Jail and the Women's Correctional Unit, housing men and women over 16 years of age awaiting trial and those serving sentences up to one year in length. The Department of Correction also maintains a security medical/surgical unit at Westchester County Medical Center for county inmates. The stated goal of the Department of Correction is "to provide for the secure custody and health care of inmates and to increase the potential for inmates to assume a productive role in society." Despite this worthy goal, the cost of the Criminal Justice System continues to escalate. For example, in 1988, the Westchester Department of 5 Correction appropriation was $45,300,000; in 1989 $51,500,000; and in 1990 $61,000,000. 79Justice and Corrections, CRIMINAL JUSTICE In addition to expenditures directly related to Criminal there are ancillary costs which are often ignored such as: the impact of disproportionate incarceration on the families The impacneamerican inmates ( 68% of total incarcerated). he cycle of poverty which demonstrates that the ex-offender sega their return to society has not really "paid his/her Goegeand has difficulty obtaining meaningful employment or {place to live. The alternative is usually criminal involvement and/or welfare. Recidivism in Westchester County is reported at 60%. the loss of life and property in the African-American community as the result of criminal activity. The higher cost of goods and services in African-American neighborhoods which reflect the cost of doing business there j.e., insurance rates, burglar alarms, window bars, private security services and other crime preventive technology. The loss of income due to crime victimization such as physical and emotional injury and uncompensated loss of wages. The recent dramatic increase in crime and its impact on the African-American community can be directly attributed to substance abuse related crimes. For 1989 - 1990, it was reported by the Department of Correction that 60% of the inmate population at the County Penitentiary and Jail were there on drug related offenses; i.e., sale, use or under the influence. 80CRIMINAL JUSTICE African Americans represented 66% of those arrested for drug related offenses. According to the Alternative to Incarceration Service Plan Amendment for Alcohol and Substance Abuse Programs proposal to the New York State Division of Probation and Correctional Alternatives, Westchester Criminal Justice Services reports that "there is no outpatient treatment program in Westchester County that provides immediate treatment for felony offenders with alcohol/substance abuse problems as an alternative to incarceration." (P16) It is further reported that existing services for felony substance abusers involved with the Criminal Justice System do not provide for the "on-going viable and supervised treatment services that this population sorely needs." This aspect of crime and its growth has to be explored further as a health intervention issue rather than as a “buy and bust operation" which is the usual approach by the police in African-American neighborhoods. A strong indicator of where crime prevention and alternatives to incarceration are placed on the priority scale of corrections is the fact that the aggregate of State and County funds for such activity in Westchester represent 2% of the total 1990 County . expense appropriation for Public Safety, Correction and Courts. 81SRIMINAL JUSTICE another important consideration that is usually overlooked in discussions of the Criminal Justice system is the fact that the majority of African Americans are hard working, law abiding, and have contributed heavily to the prominence and advancement of Westchester County. These citizens should be entitled to the same degree of safety and quality of life that is taken for granted and enforced for whites. COMMITTEE REPORT The Criminal Justice Committee of the African-American Advisory Board (AAAB) recognizes that any study of the Criminal Justice System and the African-American Community cannot be studied in a vacuum. Further, the Criminal Justice Committee is aware that due to limitations of staff, time and resources, it is not possible to study many of the issues important to the African-American Community in the area of criminal justice. However, it is hoped that the Committee's selection of the issues will serve as the basis for future comprehensive studies. The Criminal Justice Committee has identified racial bias in the areas of economic development, job opportunities, housing, enforcement as the overriding reason for the education, and law increasingly high rate of African Americans in the Criminal Justice System. 82CRIMINAL JUSTICE For example, in Westchester County, African Americans represent an estimated 12-15% of the total population, but 68% of those incarcerated. (See Table 5 - page 60) County statistics also reveal that on any given day, one in four African-American males are known, to the Criminal Justice System through prison, jail, probation or parole. For the period ending June 30, 1989, 65.6% of the admissions to the County Jail were African American. During this period, African Americans represented 47% of the total arrested and 66% of those arrested for drug offenses. crime is very democratic in the sense that it is a medley of social economic problems which has affected American society. Criminal activity causes fear, anxiety, despair, cynicism and often-times hardship to most segments of the social hierarchy and across ethnic boundaries. However, the impact on African Americans is disproportionate to their population in Westchester. The issues selected for study and recommendations are: 1) The predominance of African Americans in the Criminal Justice System and in County correctional facilities. 2) Equal justice 3) Economic inequities 4) Equal employment opportunity and affirmative action within the Criminal Justice system. . 5) Substance abuse as a health issue rather than an exclusive issue of Criminal Justice and correctional facilities. 83 1CRIMINAL JUSTICE If the Criminal Justice System is used as a barometer of the economic status of African Americans in Westchester, the increased numbers of African Americans in the correctional system can be explained by high unemployment, lack of skills, lack of an adequate education and homelessness. Although Westchester County usually enjoys an overall unemployment rate below 4%, the unemployment figure for African Americans is usually in the range of 10-15% and 25-40% for African-American youth age 16-21. For those African Americans who are employed, there is a family income distribution which is $16,557 less than the mean income for a comparable white family on an annual basis. Some studies have suggested that changes in employment i.e., chronic unemployment may be a strong predictor of increased incarceration rates for African Americans. Low paying jobs, marginal involvement in the work force and unemployment have been historic for African Americans except for World War I and II and the immediate post war periods. ‘An interpretation of these facts is that although it is not cost effective, it is more expedient politically to "get tough" and incarcerate rather than address the causes of social and economic maladjustments. 84CRIMINAL JUSTICE There is no question that statistics for the Westchester County Correctional Systems verify the charge that African Americans are disproportionately the largest ethnic group incarcerated. The next question is the reason for such large numbers. Racial discrimination and bias is usually offered as the answer. The AAAB Criminal Justice Committee found that differences based on race had already impacted the African American long before he/she entered the Criminal Justice system “Equity is a concept which is central to our meaning of justice. Regularity in decision making is essential for equity and cannot occur without established criteria upon which just decisions are to be made. Discrimination occurs where decisions are not made on the basis of legitimate criteria above, but instead are influenced by illegitimate factors." (P 28 Racial Discrimination in the Criminal Justice system - Richard J. DeHais, September 21, 1987.) The facts surrounding the disproportionate rates of incarceration for African Americans also raises the possibility that differential treatment within the Criminal Justice system has created a disadvantage for non-white suspects. as i i | | | | i i | oooCRIMINAL JUSTICE Incidents of harassment and racially motivated excessive force by law enforcement officers is not unusual in the African~ American Community. There are few law abiding African-American citizens who have not experienced the embarrassment and indignity of being challenged by the police “on suspicion" without any basis other than color. This harassment is magnified when the "suspect" already has been known to the Criminal Justice System. one of the frequent complaints voiced at the public forums held by the AAAB Criminal Justice Committee was harassment by law enforcement persons against African Americans. Although there is no statistical data to support the charges of harassment, it is the position of the Committee that any incident which is perceived as being racial, secular or non-secular and is processed in a way inconsistent with acceptable criteria remains abusive until it can be validated. the Committee acknowledges that criminal involvement is a serious social problem but maintains that the Criminal Justice system cannot be separated from the issue of racial discrimination. the failure to acknowledge that racial differences play a role in the administration of justice from the point of arrest to sentencing will only serve to perpetuate its existence. 86CRIMINAL JUSTICE ‘There are several programs for pre-incarceration and alternatives to incarceration in the County. However, data was not available as to the race or ethnicity of the participation. ‘The eleven (11) programs reviewed in addition to the three (3) new programs due to be operational in 1990 are conceptually sound, however, steps must be taken to insure their application to the African-American community. Another major concern of the Committee was the experience of the African-American inmate once in the System, and the impact on to his/her family in the community during the interim. The Department of Correction admits that due to overcrowding, it has been necessary to reallocate space originally dedicated for rehabilitative program activity to house additional inmates. Work release procedures for eligible inmates have been revised and are currently being reviewed by the State for approval. In the meantime, work release programs have been suspended. A Department of Correction official stated that education is the key to inmate rehabilitation. There are also several educational and guidance programs operating in the County Correctional Complex including Alcoholics and Narcotics Anonymous; College Careers; Literary Volunteers; Day Care Training; and Religious Training. 87RUENAL gusrrcE Many of the programs are staffed by volunteers, 2/3 of whom are Non-African American. Additional volunteers are needed from the African-American community. From a paid staff perspective, it was reported that 28% of Department of Correction staff, uniformed and civilian are African American. ‘The impact of the incarceration of African-American males is devastating for the African-American Community. Approximately 80% of the incarcerated African Americans are male and are predominantly in the 20-29 age group. With nearly 25% of the African-American male population under the control of the Criminal Justice System, family and community stability is adversely affected. While their white counterparts are pursuing careers, educational advancement and the development of families, 25% of the African-American male population is under the control of the Criminal Justice System. he net result is that there are less African-American males being groomed to assume positive leadership roles in their community- he correlation between the high incidence of african- american male incarceration and economics is reinforced when we focus on the innate’s family. 88CRIMINAL JUSTICE Recent studies of the African-American family highlight the fact that there is a CRISIS. At the core of this crisis is the disproportionate incarceration of African-American males; low educational achievement; high unemployment; limited access to good paying jobs with stability; and the necessity for women to lead the household. The African-American female suffers an unemployment figure which is higher than white males, African-American males and white females. According to the Westchester Department of Planning Report of November 1985 Social and Economic Findings of the Census 1980 (and update): - s+. poverty strikes harder at female family householders than at families in general and that those female householders with children are nearly eight times as likely to be afflicted by poverty than women without children in the home. (See Table 2 - page 50) - In Westchester, minorities...are more likely to be impoverished than is the populace as a whole...whites are also less likely to live in poverty than the population overall. Poverty among other segments of the County's residents approaches 20%. This is true for Blacks, Native Americans and Hispanics. (See Table 4 - page 51) - Employment in the professional specialties was almost evenly divided between males and females with males holding 52.6% of the positions. Again, the category was dominated by whites. Black females, however, held almost twice as many professional jobs as their male counterparts, although this amounted to only 4.6% of the overall employment in this category. (See Table 6) 89TABLE 6 a0 DISTRIBUTION OF OCCUPATIONS AMONG SEXES, RACES, SPANISH ORIGIN PERSONS AGED 16 YEARS MNO OVER, YESTONESTER COTY, 1980 TEETEATIORE FRISCH Tee Total Pale | Feval roma. ss as] 2a] 22 Executive, Adniniatrative, ‘Managerial D0 as) 12] 08 Professional Specialty 56 aal r2] a2 Techniciane, Related Support | 51.6 sal 26] 20 sates 563 30] ral 16 Aaministrative Support, Inclusing Clecicel 35] 09] 26 Pravate Household Service | 5.3 10.8) 0.5] 10.3 Protective Services w2 aa 29] 02 Service, Except Protect ve and Private Hovsehols Bs 92] sal an Faraingy Forestry, Fianing | 09.1 nal 7a) a Peaciten Product ion, trate, Repel na 55] a9] 06 aching Operators, aeerolere, Inepectare | 35.4 1.0 a8 Teanaport ation, Material roving 936 sa] sal o2 Mandlera, Equipaant Cleaners, Velpere, Laborers 8.3, we Unemployed, wath no Cavalian Work Experience Since 1975 | 48.7 eal acla wan Origin persona are distributed eaong all races. Seaman Orsoan corso rset Dpsortuity Sovchal Fale, UsSs Burems of the Cornus, 1960. ver 10/85 = Nearly one-fourth of the Speniah Orioin females in the civilian labor force in 1980 were enployed in administrative support positions. the second Largest occupational cetegory for these woren was machine operation and elated positions. Employment in the service sector ranked third by professional specisiities. 90 followedCRIMINAL JUSTICE - In the service sector, more than half the jobs were held by women, with Black women holding a relatively large share, compared with the proportion that Black women represented of the total County population. - In the categories of transportation and material moving; handlers, equipment cleaners, helpers and laborers males dominated and in this category..."There was a greater proportion of employment for Black men in these two categories than in any others." (See Table 6 - page 90) It is ironic that one of the areas of employment in which African-American males are highly represented is in the Department of Correction (28%). However, in other levels of the Criminal Justice system, there are very low percentages of African-American uniformed or civilian employees. This is true for the County Police, the Probation and Parole Departments, the Courts, local police departments as well as in other areas of Criminal Justice in Westchester County. Within the Criminal Justice system, bail and payment of fines are the most obvious in terms of economics and the ability to pay or go to jail. According to the Office of Criminal Justice, most African Americans are remanded to the County Jail because they cannot raise bail, pay the imposed fine, and frequently, first offenders are not provided the opportunity to plea bargain. 91CRIMINAL JUSTICE ‘A component of the AAAB Criminal Justice Committee study includes strategies and recommendations to improve the Criminal Justice System, and to collaborate with the Committees on Housing, Economic Development, Substance Abuse and Education to address the root causes of the increasing number of African Americans who come under the control of the Criminal Justice System annually. RECOMMENDATIONS ‘The County Government should develop a strategy that includes the following components: Public Policy, Programmatic Solutions and Leadership Initiatives Public Policy: The county should develop a package of public policies that help create an atmosphere which encourages African Americans to more readily serve on conmissions, boards, and the volunteer sector. For example, the judicial system should be encouraged to reach out for African Americans to serve as jurors through education and public service announcements. Contrary to popular belief, a citizen can volunteer to serve as a juror rather than wait to be called. in terms of affirmative action, there must be recruitment efforts not only to attract more uniformed and civilian employees, but also to provide internships for pre-law African-American students who are interested in criminal law. 92CRIMINAL JUSTICE More African-American judges, assistant district attorneys, prosecutors and court clerks are needed. The Committee recognizes that in some instances it is a political decision that determines who gets the appointment. Nevertheless, there should be an available pool of qualified and qualifiable African-American candidates. Programmatic Solutions: During incarceration there should be increased work release opportunities for eligible inmates, increased use of community volunteers, and updated skills training with supportive services in the correctional facility. In addition, Alternatives to Incarceration Programs should be expanded with oversight responsibility to ensure that African- American inmates are included in these programs commensurate with their percentage in the Jail and Penitentiary population. Leadership Initiative: The AAAB Criminal Justice Committee in conjunction with the overall AAAB must urge the County Executive to fully utilize the AAAB as his advisors on matters of Criminal Justice as they relate to African Americans. Leadership Initiatives include Affirmative Action, Training, Prevention and Recidivism Reduction and Innovative Programs. We also urge the County Executive to establish a procedure by which all citizens can appeal physical + and emotional abusive treatment based on race, sex, sexual orientation, secular or non-secular affiliation. 93CRIMINAL JUSTICE Affirmative Action: The Westchester County government should: 1) Encourage and legislatively support steps necessary to increase African-American representation on police forces and other law enforcement positions within the county. 2) Generate new efforts of hiring and retention of African Americans in the Probation Department, Court Systems, Correctional Facilities, and Criminal Justice Planning Department in top level’ positions. 3) Demonstrate a strong commitment to improving relations between the police and African-American communities by initiating and/or expanding local projects to increase contact between police and African-American citizens. Such projects would include the creation of locally based "satellite" police stations in community facilities; i.e., public schools, community centers, etc. to increase the availability of patrolmen on the beat to meet residents in a non-confrontational manner and also to solve day-to-day neighborhood crime problems. 1) The Commissioner of Corrections in cooperation with County government should encourage the continuation, advancement and review of the "New Beginnings Program" in the correctional facility; initiate creative, updated skills training with supportive services to prepare inmates for return to society as productive citizens with relevant job skills. 2) Encourage and foster job work release programs with an Enehasis on small and medium sized business. Such Srbgrams have proven successful in Westchester and should be expanded. 3) "Law enforcement training programs should be held within {haw sporcenent agencies so that officers may become Law oiged to the difference between bias-motivated sensitized crimes stenming from different motivations." (source Crime and the Black Community - The (Sourtor's Advisory Committee for Black Affairs - NYS Dec 1987 pg. 40) 94CRIMINAL JUSTICE Prevention and Recidivism Reduction: The County of Westchester should: 1) 2) 3) Solicit the support of community-based organizations to initiate family support programs to help former inmates and their families for re-entry into the community. Expand the availability of Treatment Alternatives to Street Crime (T.A.S.C.) Program; and actively seek State funding for additional programs and space requirements to reach eligible clients who would benefit from an alternative to jail, such as the Community Service Program. Initiate a holistic approach to the prevention of crime in the African-American community in recognition of that community's special problems related to color. The most effective and lasting prevention measure is for the County to acknowledge the existence of drastic difference in the incidence of imprisonment of African Americans as problematic and having a dramatic impact on families, extended families and general communities. The major factors which define the underlying trends in the crisis affecting families are poverty, income instability, unemployment, human services, lack of adequate housing, the present formation of households, and the disproportionate number of African Americans who experience imprisonment. Specifically, the County must. address, support and initiate incentives for various County agencies and local governments to provide adequate housing through present laws or new legislation; provide technical assistance and encourage businesses to develop those communities that have become deteriorated. Innovative Programs: The County of Westchester must: 1) 2) Explore fully alternatives to incarceration for first time youth offenders. This is particularly critical because statistics (national) indicate that one in four African-American males in the age group 20 - 29 is either in jail, in prison, on parole or probation. Monitor the alternatives to incarceration to ascertain the numbers of African Americans that are able to access these programs. 953) 4) CRIMINAL JUSTICE Monitor the selection and representation of African. Americans for Jury Service at Local and County levels. Some citizens have indicated that they have never been called, while others feel that they have been called too often. The involvement of increased numbers of African Americans in the jury system would tend to sensitize and bring a relevant cultural dimension to a judicial system where more than one half of the defendants are African American. Arrange for the data that has been compiled over the years on issues affecting the African American in the County by various County departments to be consolidated into one comprehensive report. This document could then be utilized to develop, implement and monitor specific action plans by the County Executive and his staff in conjunction with the County Board of Legislators and the AAAB, 96 a a A A HB Sai3) 4) CRIMINAL JUSTICE Monitor the selection and representation of African. Americans for Jury Service at Local and County levels. Some citizens have indicated that they have never been called, while others feel that they have been called too often. The involvement of increased numbers of African Americans in the jury system would tend to sensitize and bring a relevant cultural dimension to a judicial system where more than one half of the defendants are African American. Arrange for the data that has been compiled over the years on issues affecting the African American in the county by various County departments to be consolidated into one comprehensive report. This document could then be utilized to develop, implement and monitor specific action plans by the County Executive and his staff in conjunction with the County Board of Legislators and the AAAB 96 a a a A cateqq) (2) (3) (4) (5) CRIMINAL JUSTICE REFERENCES Sourcebook of Criminal Justice, Westchester County Social and Economic Findings of the Census Westchester County, 1980; Westchester County Department of Planning, 1985 Crime and the Black Community: An Assessment of the Impact of Selected Criminal Justice Issues in New York State, 1987 Racial Discrimination in the Criminal Justice System: An Assessment of the Empirical Evidence, Richard J. Dehais Article - Young Black Men and the Criminal Justice system: A Growing Problem, Marc Mauer, February, 1990 97AFRICAN-AMERICAN ADVISORY BOARD SUBSTANCE ABUSE COMMITTEE COMMITTEE MEMBERS Ms. Cheryl Davenport-Dozier Chairperson Mr. J. T. Childs, Jr. Ms. Leslie A. Mardenborough 98SUBSTANCE ABUSE INTRODUCTION over the last decade - substance abuse has become one of our nations leading problems affecting all persons young, old, Black and White. Even though it is an age old problem it has recently become one of the major devastations of families and communities. It is believed that our nation is now responding to this critical problem because it has crossed racial, ethnic and economic groups into the mainstay of American society. The low-moderate income African-American community has been negatively impacted by alcoholism and other substance abuse since the sixties. Substance abuse is the single major, leading social, economic, and health problems confronting the African-American community. Substance abuse is a major factor in the increase in crime, family violence, the growing rate of violent deaths among African Americans and the depletion of the future resources of the African-American community. "Substance abuse further leads to an erosion of life chances, and erosion of family life and the erosion of the cultural tradition and sense of community life for African Americans." (Nobles and Goddard) Intensive study of African-American drinking and drug use patterns and their consequences is a relatively new research endeavor in this country. Studies have shown that there are distinct differences in drinking and drug use according to race, ethnicity, sex, class and region of residence. The incidence 99iia SUBSTANCE ABUSE of medical problems associated with alcoholism is very high among African Americans. Cirrhosis of the liver and esophagus cancer are extraordinarily high among African Americans, especially males. (United States Health and Human Services) Within Westchester County, the above appears true as one looks at many of the urban African-American Communities, especially Yonkers, Mt. Vernon, White Plains, Greenburgh, Peekskill, Port Chester and Ossining. The illicit drug market has become a lucrative business operating on almost every corner at all times of the day and night, unchecked, in many African-American urban communities in Westchester County. It is especially visible in many of the public housing developments and within many of the hotels/motels that house the homeless. This illicit business employs young children, their parents and grandparents in positions of sales, guards and look-outs. The rewards are perceived to be worth the price they pay since it provides them with temporary material wealth. The risk of getting caught or killed seems to out-weigh the lust for an opportunity to "make it." Two decades ago, there were limited treatment services for substance abusers in this country. The primary substances abused were heroin and alcohol. Treatment was provided at a limited number of facilities. 100SUBSTANCE ABUSE Today, in 1990 there is a comprehensive system of services for the substance abuser. The Westchester County Department of Community Mental Health's (WC-DCMH) Office of Alcohol and Substance Abuse is responsible for coordinating, developing, and monitoring alcoholism and substance abuse treatment, prevention, information and referral services. These services are separated as alcoholism specific and substance abuse according to their New York State funding sources, the Division of Alcoholism and Alcohol Abuse (DAAA) and the Division of Substance Abuse Services (DSAS). ‘The county-wide system of services has expanded greatly over the past decade, especially the alcoholism services and drug detoxification services. The alcoholism and substance abuse service delivery system is made up of the following components: - Information and Referral Services - Prevention and Education - Outpatient Treatment - Drug Free - Alcoholism Clinic - Alcoholism Day Rehabilitation - Inpatient Treatment - Detoxification - Inpatient Rehabilitation - Methadone Maintenance : - Residential Drug Free - Alcohol Halfway House - Employee Assistance Programs - Criminal Justice Programs - Vocational Rehabilitation 101SUBSTANCE ABUSE Less than 5% of the more than 50 alcoholism and substance abuse agencies are perceived by the African-American community as being African-American organizations. The 1989 local government plan for alcoholism programs in Westchester County in its tables of analysis of access by targeted groups indicates that the estimated percentage of African Americans in need of services is met in all of its county service area: This committee would challenge the formula that is utilized to determine the estimated need, in that, among lower socio-economic impoverished areas the need is greater than for other aspects of the community. It would also be important to identify the balance between lower socio-economic class and middle/upper class African Americans served in the county's treatment programs. The plan does identify in the primary prevention strategies a need to expand services at the local council on primary prevention to include a broader cultural spread including Blacks. (WCDCMH-AA) The New York State DAAA introduced the concept and coined the phrase "The Alcohol Connection" in its five year comprehensive plan (1989-1994). One of the components of this concept is the establishment of linkages and cooperative efforts with other health and human service providers in order toSUBSTANCE ABUSE The New York State Division of Alcoholism and Alcohol Abuse has published the following facts in it's Fact Sheet entitled: Alcohol Abuse and Adults, in the February 1989 issu Black males have higher rates of heavy drinking (31%) than do white or Hispanic males. (both 23%) (Adult Use) Heavy drinking goes up with income. Twice as many upper-income persons drink as do low-income persons; heavy drinking among upper-income persons is more than twice the rate of lower ones. (24% versus 10%) (Adult use) More older persons are drinking heavily in recent years. Rates of heavy drinking for those 65 or older are the same as persons in their 30's, 40's, and 50's. (Adult Use) Nearly half of all violent deaths are alcohol-related, and the victims are intoxicated in about one-third of all drownings, homicides, boating deaths and aviation deaths, and one-fourth of all suicides. (6th report) Nearly half of all convicted jail inmates were under the influence of alcohol at the time of the offense, and nearly half of that group were drunk. Alcohol is involved in an estimated 45-60 percent of reported incidents of domestic violence, 50 percent of jail suicides, and 40 percent of Family Court cases. At least one in ten persons in the workforce is affected by alcoholism. However, only about one worker in four has access to an Employee Assistance Program. Alcohol is America's number one drug problem among youths. In the United States each year, approximately 10,000 young people aged 15-24 are killed in alcohol-related incidents of all kinds, including drownings, suicides, violent injuries, homicides, and injuries from fires. Heavy drinkers tend to be heavy drug users. Of the students who do not use alcohol, only. 11 percent have tried marijuana and only one percent use it regularly. But of heavy drinkers, 85 percent have tried marijuana and 50 percent use it regularly. 103SUBSTANCE ABUSE - adolescents and young adults more heavily exposed to Meohol ads on television and in magazines are more likely to perceive drinking as attractive, acceptable and rewarding than are those who have been less exposed. These statistical facts are quite visible in many of the African-American communities in Westchester County. Many of these percentages are higher in the lower socio economic African Americans in urban communities. This is evident in the high number of African Americans who have been referred for treatment services, who are incarcerated, who are in the criminal justice system, who are school dropouts, etc. Similar data was not available as it relates to other substances--but it is believed that the statistical percentages are also higher for African Americans. COMMITTEE REPORT Many indicators demonstrate the impact of substance abuse in the African-American community. Frequently these indicators have overlapping origins, as well as impact. Substance abuse is often the cause and result of many of the social, economic, and health problems that plague large segments of the African-American community. Although attention is generally focused on the impact of substance abuse on African Americans in lower socio-economic groups, substance abuse also greatly impacts middle and upper income African-American families, as well. 104SUBSTANCE ABUSE Education Indicators African Americans who are addicted to substances come from diverse educational backgrounds. It is evident that substance abuse is having a crippling impact on African-American youths in the communities that are hardest hit by substance abuse such as Yonkers, Mt. Vernon, New Rochelle, Peekskill, White Plains, Greenburgh, Elmsford, and Port Chester. These communities, for example, have the largest black student enrollments in the county and are serviced by Student Assistance Services (SAS). Several of these school districts also have the highest number of dropouts in the County. It is believed that the high dropout rates are often related to high instances of substance abuse. Additionally, children frequently miss school or are unable to concentrate on school work because of their parent's addiction. Children are affected by their parents' addiction in many ways. It is known that children of substance abusers and children of alcoholics are at high risk of becoming addicts themselves. ‘They are often left alone, neglected, and expected to take care of themselves at inappropriate times and at ages where adult supervision is needed. Some are exposed to the * aysfunctional lifestyle of substance abusers and are often permitted to use substances. Many are sexually, and frequently emotionally, abused. Many of these children blame themselves for their parents' addiction. 105,4 SUBSTANCE ABUSE | | Criminal Justice Indicators | The Westchester County Department of Community Mental | Health's (WCDCMH) Substance Abuse Five Year Plan 1989/1990 identifies statistics that illustrate the increasing crime in this county due to substance abuse, especially cocaine/crack. Arrests for sale and manufacture of opium and cocaine increased 96% from 1984 to 1985 and another 50% in 1986. Arrests for use and possession also increased over 50% from 1985 to 1986 primarily for the drugs cocaine and opium. (See pages IV - 1 of the report.) Many of these persons are African Americans from ugban communities. Many African Americans have been greatly affected by increased crime in their communities. There has been an increase in the number of black-on-black crime, particularly homicides, and drug-related robberies and muggings. Drug abuse is widely believed to be the major contributing factor to the increase of homicide occurrences amongst African-American adolescents. The increase in crime has led to the incarceration of significant numbers of African Americans in the county's prisons. In a county where African Americans make up approximately 12% of the general population, they are 68% of the incarcerated population. Eighty percent of the offenses that led to incarceration were related to substance abuse: the use and/or sale of drugs or crimes committed to obtain money for.drugs such as burglary, larceny, prostitution, etc. 106SUBSTANCE ABUSE The Westchester County penitentiary, the county jail and local jails (especially those in urban communities), have suffered from extreme overcrowding over the past decade. The decision to build more jails in response to the problem of overcrowding will lead to the incarceration of more African Americans. This solution overlooks the fact that many new prisoners, as well as recidivists are chronic or addicted substance abusers who need treatment. In 1989, in Westchester County 43% of the total unsentenced population were arrested for substance abuse related offenses. Fifty percent (50%) of all unsentenced felony admissions were found to have substance abuse problems. According to the Source Book of Criminal Justice Statistics, Westchester County, in 1988, 66% of the total drug arrests (4,767) were African Americans. These arrests were either for sale/manufacture of use/possession. In our meetings with the staff of the Treatment Alternatives to Street Crime program (TASC), we learned that of the 779 persons admitted to the program in 1988, 41% were African Americans. Of the 477 clients, 27.4% were diagnosed with alcoholism, 54.3% were diagnosed with drug addiction and 15.7% with mental illness. Two hundred and thirty-five of the 477 clients were charged with criminal possession of a controlled substance. In 1989, of the 785 individuals admitted - 659 of these individuals were identified as having chemically dependent 107SUBSTANCE ABUSE problems. (Office of Criminal Justice Services - See reference) A large number of these persons are of African-American descent. this strongly suggests that the focus should shift to creating more treatment facilities than jail cells. Treatment Indicators ‘The Westchester County Department of Community Mental Health's (WCDCMH) Alcoholism and Substance Abuse Department has a network of treatment, prevention and education, and information and referral services. In a review of these services with the department's staff, it was apparent that almost all programs are at capacity or have surpassed the number of visits allowed. Most detoxification and inpatient rehabilitation programs have waiting lists. There have been ongoing requests from the county to the state Department of Substance Abuse Services (DSAS) and the Division of Alcoholism and Alcohol Abuse (DAAA) for additional funding to expand current programs and develop new ones. County and community agencies, such as the Department of Social Services (DSS), the Probation Department, State Parole, mental health community service centers, and neighborhood health centers, are constantly seeking treatment inpatient and outpatient facilities to which they can refer clients. African Americans make up a large percentage of those clients seeking services. There is a desperate need for services for active alcoholics to sober-up such as an alcoholism crisis center. 108SUBSTANCE ABUSE Employment African Americans in Westchester County suffer from high rates of unemployment and underemployment. Many substance abusers under 30 have never been employed in the legal job market. Substance abuse is robbing the African-American community and the county's employers of potential workers. Businesses, especially those located in certain African-American neighborhoods, also suffer from thefts and vandalism by drug users. These crimes often cause businesses to flee African-American neighborhoods which adds to the depletion of economic viability in those communities. High rates of unemployment and underemployment discourage some African Americans from seeking legal employment. Others turn to drug dealing to supplement their income. There are many jobs in the well-paying drug trade. In our meetings with community and program representatives, we were told that children as young as 5 and 6 years old are recycling crack vials for 25 to 50 cents a vial and that 7 and 8 year olds get paid as "look out" for police. Children 10 years old and up are already dealing. Good dealers can make hundreds of dollars a week, more than they will ever make in“the legal job market where minimum wage jobs prevail. Dealers, both children and adults, rarely escape becoming users. The cycle is almost inevitable, they eventually 109SUBSTANCE ABUSE deal just enough to take care of their own habit. Once they are hooked the drug business no longer needs them as dealers - they become the consumer. African Americans are not employed in large numbers by employers that provide assistance to abusers seeking treatment through Employee Assistance Programs (EAPs) and health benefits that include insurance coverage for treatment. For workers without employer-provided health benefits, or whose benefits do not cover treatment for substance abuse, access to treatment is particularly difficult. Housing It is estimated that over 50% of the persons who are homeless, especially those in shelters and motels, have or have had a substance abuse problem. This is evident in the number of referrals of persons in these homeless facilities to treatment and detoxification programs. Without treatment for their addictions, the homeless will have difficulty maintaining permanent housing. It is also evident in the number of persons referred to the Department of Social Services for housing services. Many, and in some communities the majority, of those referred are African Americans. 110SUBSTANCE ABUSE ‘There is concern about the drug trafficking and drug use plaguing the temporary environments where the homeless are housed, the shelters, and motels. There is also significant concern among those who live in or near low-income neighborhoods or housing projects about the high incidence of drug use, drug dealing and drug related criminal activity around and within these areas. whether in temporary or permanent housing environments, substance abuse has a direct impact on non-users in the community and particularly on families who are unable to move elsewhere. Welfare A large number of persons receiving public assistance are either substance abusers or are impacted by the substance abuse of a loved one, often a spouse or child. These recipients, many of whom are African Americans, need referrals to treatment agencies. We are currently seeing an upsurge in the number of multi- generation families who are welfare recipients. This number is increasing among African Americans. It is often due to the symbiotic relationship that develops between poverty, its despair, and substance abuse. Welfare checks are too often used to help support the drug addicts’ and alcoholics' habit rather than the basic needs of their family. Yet most people are unaware of the web in which they are caught. Unfortunately, many uiSUBSTANCE ABUSE | DSS workers are not trained to recognize signs or effects of addiction, therefore, they miss opportunities to refer clients for treatment, which might help to break the substance abuse and poverty symbiosis. Often the addiction problems that impact welfare families are ignored by DSS workers as they focus more on the families despair and hopelessness. Health Drug use is a major contributing factor in the lower life expectancy of the African American. Chemical dependency is one of six causes of death cited by the Secretary's Task Force on African-Americans and Minority Health (1985). Additionally, African-Americans often received inadequate health care due to limited availability or the absence of health benefits. Many African-American babies are born addicted to cocaine, other drugs, or with fetal alcohol syndrome. It is still too soon for the medical profession to even know all of the developmental disabilities that these children will suffer. African-Americans are dying of drug overdoses, hepatitis, AIDS, and other illnesses that are directly related to drug use. Additionally, the incidence of death from suicide is rising among African Americans with histories of substance abuse. Indeed, often drug and alcohol abuse may be disguised attempts at suicide. African Americans in despair have not traditionally 112 resorted to traditional suicide attempts, such as wrist cutting. |SUBSTANCE ABUSE However, excessive use of drugs or alcohol may give them the nerve to intentionally drive drunk or overdose. (Nobles and Goddard). Sexually transmitted diseases are one of the primary diagnoses given to adolescents seen at area health centers. Many of these youths are already using alcohol and drugs and are sexually active which places them at high risk for AIDS and addiction. Many of these youth are also children of addicts and alcoholics. AIDS In the past few years AIDS has been ripping through the African- American community at increasing rates, largely as a result of the increase in intravenous drug use and polysubstance abuse. Again, African-American children of substance abusers bear the brunt of their parents' abuse: babies are born with AIDS and children of all ages are orphaned when their parents die of AIDS. ‘The Division estimates that 5-30% or more of those in alcoholism treatment may be infected or at risk of infection. "Alcohol may play a role in the development of HIV infection and the progression of the disease due to the adverse effects of alcohol use on the immune system. (DAAA) 113SUBSTANCE ABUSE Bble-riow entering the alcoholism treatment system Saifigs intravenously and have shared needles within the Q years. ‘They may also have engaged in high risk sexual ior. ‘This has placed them at high risk. The ARCS-AIDS Related Community Services Program in White Plains is the lead agency in the Mid-Hudson Region for providing education, information referral services to professionals and the general community. It also provides direct services to those with AIDS, their families, significant others and those who are HIV positive. The state has provided funds for counselors to work in the County's methadone programs. Family The devastating impact of substance abuse- -alcoholism, and drug addiction, and/or drug dealing--on African-American families has been indicated in all of the above. Families are destroyed everyday by divorce, early death, violence and separation due to their addiction and incarceration. There is a rise in the number of African- American children placed in foster placement or the temporary custody of other relatives because of their parents! addiction. The Family Court system has an increasing caseload because of African-American parents who are alcoholics and crack addicts. 114SUBSTANCE ABUSE The African-American community is seeing an alarming increase in the number of grandparents and great grandparents raising grandchildren because of parents’ addictions. (See article, "Grandparents Bear the Burden.") The extended family is composed up of more and more chemically dependent persons than ever before. This limits their family's ability to aid and assist relatives in housing, child care and finances. Few African-American families are being seen in treatment agencies for family treatment services. Family members are often in need of treatment as co-dependents and as children of alcoholics (COA's) or children of substance abusers (COSA's). They must learn about the disease of alcoholism and chemical dependency. They must be taught that they didn't cause it, they can't cure it but they can learn to cope with it. They must also learn that treatment can work. EXISTING RESOURCES This committee has become quite familiar with the alcoholism and substance abuse treatment and prevention agencies in Westchester County. We commend the county for having developed such a comprehensive service system. 115SUBSTANCE ABUSE here are several agencies and programs that must be commended for their positive and effective work with the African american Communities. These agencies probably employ the largest number of African Americans in the field and serve the largest number of African American clients. They are: o Westchester Community Opportunity Program Inc- - archway Alcoholism Treatment Program - lit. vernon = prug-Free Programs in Mt. Vernon, Ossining and New Rochelle o The Renaissance Projects - Outpatient Sites © College Careers 99 o The Cage Teen Center © Westchester County Medical Center - Greenburgh ATS - Ossining ATS RECOMMENDATIONS io prevention and Education special emphasis must be directed to providing children and adolescents health care and other services that focus on prevention before African-American youths become substance abusers. Coordinated intervention prograns must be made accessible to young people through the schools and community based centers to focus on those who reside in areas with high risk indicators- 116SUBSTANCE ABUSE The county should expand the development of comprehensive adolescent health and mental health service programs under the auspices of community mental health and/or health centers, and establish appropriate linkages to schools, hospitals, social service agencies, employment programs, and other community institutions (such as community centers, churches, and African-American businesses). These comprehensive programs should focus on early identification of at risk youth with a emphasis on substance abuse prevention, and include prenatal care and crisis counseling as key elements of their services. There must be increased outreach into the African- American community to involve those organizations, agencies and persons that have influence in the African-American community. ‘These include the formal and informal social networks, churches, schools, civic groups, fraternal groups, social clubs etc. There must be a total prevention campaign that focuses on increasing the African Americans' individual and family awareness of the disease of chemical dependency and the devastation of illicit drugs and alcoholism on the family and community. This campaign must target special groups in the community at different levels including 117SUBSTANCE ABUSE African-American youth, elderly, women, Vietnam Vets, and families. Different outreach strategies must be developed in order to reach the middle and upper classes. There needs to be the development of a training program whereby key persons in the African-American community can receive education about the disease of alcoholism and drug addictions and its crippling impact on African Americans and their communities. They must be trained to identify the signs and symptoms and referral resources in their communities that are culturally sensitive. These key persons may be the clergy, healers, barbers/beauticians, liquor store owners, bartenders, funeral home directors, civic leaders, etc. Additional programs are required that provide prevention and education services to African-American children of alcoholics (COA's) and children of substance abusers (COSA's). These services must be offered more in the African-American communities with a focus on and an understanding of the cultural and environmental factors that contribute to these children's ongoing stress. . Additional services need to be expanded and/or developed to work with teenage mothers and pregnant women who are chemical users or abusers. These services must also operate in African-American communities and incorporate cultural and environmental issues. 118II. SUBSTANCE ABUSE Treatment Services The County should increase outreach efforts into the African-American community to include persons from the Caribbean, Central America, South America and Africa Community organizations should be encouraged to assist county agencies in finding cases and referring African Americans to treatment. A plan should be developed and implemented which eliminates treatment service gaps which adversely affect treatment for African Americans in particular. The plan should include development of outpatient rehabilitation drug-free services in African- American communities, more intensive treatment services for cocaine and crack users and alcohol crisis centers and residential treatment programs (halfway houses) throughout the County, especially in African-American communities. The plan should also address the need for additional inpatient rehabilitation services for chemically dependent persons, especially for those who are on Medicaid and those without third party insurance who cannot afford to pay; the working poor, many of whom are African American. Detoxification services in the County need to give admission priority to county residents to ensure that they are not barred from receiving treatment on a timely basis. 119SUBSTANCE ABUSE Finally, particular attention should be paid to the creation of additional vocational programs (e.g., job training and placement) that support rehabilitated substance abusers as the transition out of treatment. There needs to be alcoholism and substance abuse outpatient treatment services that focus on the racial/ ethnic/cultural issues of African Americans. Special emphasis should be given to the middle/upper classes who are seeking a cultural based treatment approach. These services should be developed and operated by African Americans. III. Staffing Treatment Programs and Training County Employees The WCDCMH should recruit and place more African-American administrators and clinicians working at its main office, Community Service Centers, the TASC program, MR/DD programs, etc. In addition, WCDCMH needs to monitor the contract agencies staffing patterns to ensure that there are adequate African-American clinical and administrative staff in programs to appropriately meet the needs of the clientele and the community. The County needs to set aside funds to assure that African Americans are trained as clinicians for:Iv. SUBSTANCE ABUSE should be mandated for all treatment staff in substance abuse and alcoholism treatment programs, as well as for staffs of county organizations that refer or mandate African-Americans to treatment. This would foster a better understanding of cultural differences, which can interfere with effective outreach to, and treatment of, African Americans. Treatment staff need to receive intensive multicultural training to foster a better understanding of the special needs of this population. Criminal Justice The County should monitor the disposition of cases and establish appropriate procedures to ensure that African- Americans who are arrested and who have substance abuse problems are offered treatment as an alternative to incarceration at the same rate that other ethnic groups are offered this option. The County must make eradicating substance abuse within its correctional institutions a priority. The need for adding intensive alcoholism and substance abuse treatment service facilities within these institutions, especially the new jail, should be explored. Such facilities would provide the necessary rehabilitation for addicted offenders on a mandatory basis. 121SUBSTANCE ABUSE The County's jails must find better ways of monitoring staff and visitors to ensure that drugs are not obtained by the inmates. The correction department must better utilize the County's Employee Assistance Program to deal with the alcoholism and substance abuse problems of their employees and their families. 122SUBSTANCE ABUSE REFERENCES Abuse Programs. (WC-DCM# - AA) - 89 (1991) -WCDCMH Westchester Department of Community Mental Health 1989 & 1990 Local Government Plan for Alcoholism and Alcohol Abuse Programs. Westchester County DCMH Comprehensive County Plan for Substance Abuse State Fiscal Years. 1989/90 - 1994/95. (WC-DCMH-SA) - County Plan Update - 1989 - Submitted 2/20/90 NYS Division of Alcoholism and Alcohol Abuse-Five Year Comprehensive Plan for Alcoholism Services in NY State- 1990 Update (DAAA) “Drugs in the African-American Community" A clear and present Danger" by Wade W. Noble, PhD. and Lawford L. Goddard, PhD (Nobles - Goddard) “alternative to Incarceration Service Plan Amendment for Alcohol and Substance Abuse Programs" submitted by office of Criminal Justice Services - (OCVS) March 1990 Article - "Grandparents Bear the Burden of Drugs" Alcohol Use Among U.S. Ethnic Minorities: Proceedings of a Conference - September 1985 U.S. Department of Health and Human Services - Adamha - NIAAA (us-HHS) Sourcebook of Criminal Justice, Westchester County. 123AFRICAN-AMERICAN ADVISORY BOARD EDUCATION COMMITTEE COMMITTEE MEMBERS Dr. LaRuth Gray Chairperson Dr. Robert D. Frelow Ms. Jean Greaves, MSW Ms. Lovette W. Harper Ms. Nathalie B. McFarlane Dr. Sandra Shelton Mr. Cary Smith Committee Staff Support provided by Metropolitan Center for Educational Research New York University Lamar Miller, Executive Director 124EDUCATION COMMITTEE INTRODUCTION It is the view of the Education Committee of the AAAB that one of the most important investments by the County of Westchester must be in education and training to meet the challenges of the 21st century. "These are not soft social concerns, but rather hard line considerations borne of economic necessity for the County." In preparing this report, the Committee was cognizant of the legal responsibilities of the County as related to its role at the local level. The Education Committee explored the needs of Wéstchester's African-American community in the context of discreet areas within the purview of County government. The Education Committee's recommendations represent a composite of those developed from six areas of concern selected that are within the scope/responsibility of the County. The recommendations include specific references to Day Care; the educational needs of homeless children and their families; support/provision of policies/programs to meet the parenting skill needs of female-headed families with an emphasis on single teenaged mothers; the needs of economically disadvantaged African-American students; noteworthy educational models that can be duplicated in Westchester; and the redirection of some of the energies exerted by existing agencies financially supported by Westchester County and whose policies impact education. 125EDUCATION A careful analysis of this report indicates that many of the problems identified by the Committees on substance abuse, criminal justice, housing and economic development, to some extent, have their roots in a lack of educational opportunity and accomplishment. This is not to say that an improved and quality enhanced educational system would be the panacea. However, it cannot be ignored that prior research studies have indicated that there is a definite correlation between poor performance in school; the dropout rate; delinguency, high unemployment and lower earnings for the African American, regardless of age. The Education Committee provides this report to assist County Executive O'Rourke in the development of policy responses to the issues addressed in the study and other related educational concerns of the African-American community. COMMITTEE REPORT The report of the Education Committee is divided into four (4) sections which cover the six discreet areas of concern. The overriding theme of each section is the lack of coordination between essential government services which impact education as the major contributing factor to the failure of the current educational system to meet the needs of the American-American familyEDUCATION For example, there are no formal programmatic connections between the various service delivery mechanisms which deal with: () day homeless families and their children the economically disadvantaged the unemployed single parent families, especially teens who often lack the necessary parenting skills to cope in today's society day care The four sections address the following areas of concern: The need for community/school/and County collaboration on care to pay attention to the unique needs of the African-American community. (2) The need for the enforcement and monitoring of the legislation and administrative remedies | enacted in recent years by the New York State Legislature which provide for the educational requirements of homeless children. | Particular attention must be paid to consistent implementation of the for Stewart B. McKinney Homeless Assistance Act. (3) The need the County to give a higher priority to programs which recognize that the educational needs of economically disadvantaged African-American families are closely interrelated and The have a measurable impact on the Westchester economy. (4) need for more programs which deal specifically with the parenting skills and educational needs of single parent families with an emphasis on teenaged/parents. 127EDUCATION There is an inextricable relationship of education to the spectrum of problems which disproportionately affect the African- American community. Over the years, education as an institution has been blamed for its failure to rectify the social/economic shortcomings of the larger society. Ironically, the Criminal Justice system has also been blamed for its failure to rehabilitate and "correct" the ever growing population of African Americans for whom the Educational System has generally failed. In a recent interview with a high Department of Corrections official, it was stated that "education is the key to eventually reducing crime." The education of the African-American child cannot be dealt with separate from other social and economic factors. To achieve the educational goals desired, there must be collaboration between the community, the school and County government. Community/School/County Collaboration-Day Care Although the County provides $34,700,000 annually in support to child care through the Child Care Council and other entitlement programs supported by the state and federal government, there is not presently a comprehensive County policy guaranteeing quality child care for all children particularly for 128EDUCATION the children of teen parents; children of homeless families; and the working poor. "All children have the right to a healthy, secure, nurturing infancy and loving," Childhood Bill of Rights for Children: New York State Board of Regents During its investigation, the Education Committee interviewed various representatives of existing day care organizations and it was their perception that there is a discrepancy between the level of support provided by County funded support groups to African-American Community based child care centers and others in the County. Further committee research revealed that there are not enough affordable child care centers for working poor families in the African-American neighborhoods that can provide service consistent with the best early childhood practices. African-American families have the right to flexible services offered in neighborhood settings that are easily accessed, non-threatening and sensitive to their needs and background. The need for this sensitivity on the part of government: was clearly enunciated by the New York State Child Care Commission in its 1986 finding which averred that government has the responsibility through public policy, administrative procedures, and adequate funding to plan for and ensure the availability of accessible, affordable, and high quality child care for families who need and want to care for their children. 129EDUCATION Children's education should be nurtured within the context of their families, when consistent with their safety and well-being and synchronously families should be supported within the context of their communities. Research in child development, sociology, clinical medicine and social epidemiology confirms the interrelationship between the experiences of childhood and future development. The growing child is subjected to the impact of changing economic, social and political realities on the family's capacity to meet his or her complex needs. Dramatic social and demographic changes of the past few decades have caused a substantial increase in the family's vulnerability. It is projected by the 1990's that more than 75% of all children in two-parent households will have both parents working outside the home. EDUCATING AFRICAN-AMERICAN HOMELESS CHILDREN The 1987 Stewart B. McKinney Homeless Assistance Act addresses the educational needs of homeless children. ‘he education provisions of this Act are premised on the beliefs that: all homeless children have the right to a free and appropriate educational experience; and that state and local laws must be revised to comply with the new state regulations, if necessary. 130EDUCATION Additionally, the May 1988 Amendment to the New York State Education Law adopted by the Board of Regents calls for the establishment of an Office of Coordinator for the education of homeless children and youth. The McKinney Act amends the Social Service law by adding a new subdivision (6) to Section 62 that requires local social service districts which provide assistance to a homeless child located outside the school district of last attendance, to notify the Commissioner of Education, the school district of last attendance, and the school district designated by the parent. Local social service departments are responsible for obtaining a signed designation from the parent for forwarding to the New York State Education Department. In interviews with County Department of Social Services officials, committee members were unable to obtain precise data on the number of African-American children living in County facilities. The committee was repeatedly told that the County doesn't maintain that information. However, data gathered from interviews and local school records indicate that African-American children are the single largest group of homeless children. 131EDUCATION In Westchester County, the Southern Westchester Board of Cooperative Educational Services (BOCES) serves as the state office for working with local school districts in meeting the mandate of the McKinney Law. At the time of our investigation, four school districts in the County have been’ funded under the Youth at Risk and Community Partnership to develop programs for homeless school age children/families based upon identified needs. The districts are Greenburgh, Lakeland, Mamaroneck and White Plains. The committee urges an expansion to all local school districts as a matter of policy. In order to understand first hand the educational needs of homeless children and their families, the Education Committee conducted a series of interviews with County, School Officials | and BOCES personnel. | Three facilities for the homeless were visited and parents | and children interviewed. Committee members also attended a hearing in New Rochelle which dealt with the issue of homelessness. ‘me findings of the Committee parallel those derived from the U.S. Department of Education Report (1989) and the Clearinghouse on Urban Education (CUE) and the Education Resources Information Center (ERIC) interviews with educators and homeless advocates. 132EDUCATION The educational problems of homeless children and their families most frequently mentioned are: Transporting homeless students, many of whom change shelters often, to and from school can be complicated. The transportation system exacerbates the labeling problem so keenly felt by our homeless children in the County. How can you tell a homeless child when they come to school? A significant number of African-American children come in taxis. School records are rarely transferred from school to school promptly because parents are often too embarrassed to inform schools that they are homeless. Without records, new teachers must invest extra time in assessing achievement levels which causes a delay in correct placement. Health records, especially for those families which include an abusive spouse, are rarely intact. Although many state laws previously mandated that children could not attend school without their immunization records, many school have become lenient and do not enforce this edict. Therefore, many homeless children end up having to be re-immunized. The lack of immunization or its verification potentially places the rest of the school population at risk. This is a serious public health threat. General lack of community services for homeless families, including health and mental health care, as well as day care for school-age mothers, makes regular school attendance impossible. Emotional and socialization problems are common consequences of homelessness. Many homeless students are under severe stress and act depressed or aggressive. Students are often embarrassed to tell anyone at school about their lifestyles and, therefore, have a difficult time socializing with peers. Education is not a priority for many homeless families, because they are too often occupied with finding food, safe shelter, and employment. 133EDUCATION It should be noted that the AAAB Education Committee does not wish to imply that its observations and recommendations concerning the education of homeless African-American children indicate a desire to institutionalize homelessness. The long range objective is the development of affordable housing to ameliorate the current housing shortage. The short range objective is to provide the education and social services necessary to meet basic needs during homelessness. | Figures provided by the New York State Education Department survey of July 1988 cited a total of 1,978 children living in Westchester County provided facilities; 58% of these children were under five years of age. One major underlying question that was not answered by anyone we talked to dealt with how to make education a high priority for homeless families. DSS personnel, in its conversation with committee members, often identified large numbers of homeless families as "multi- guilty of child abuse and neglect, unnurturing parents facted’ producing children suffering from malnutrition, and children in need of foster care placement. It is the perception of the committee that education and school attendance are not high priorities for the local social service agency, but rather that 134EDUCATION the concentration of resources and efforts is on what is perceived as the pathology of social service clients. For example, it is private funding that provided for the implementation of an after school program at the White Plains facility. The committee found that the different departments and agencies that service the homeless student are not coordinated and a great deal of overlapping of responsibility exists. Rather than being proactive, most are reactive. Another dimension of education for African-American children irrespective of homelessness is how they see themselves in relation to the overall society. Self worth is an important motivator, especially for the African-American youngster who must function in a majority dominated society. The new buzz phrase is “cultural diversity", however, until recently, the American educational system did not focus on multi- cultural differences as an integral part of education. The emphasis has always been Western Culture as the measuring rod of ingenuity and the success of the United States as a world leader. The portrayal of whites as the criteria by which other races and cultures are measured is reinforced by racially and ethnically segregated schools, segregated neighborhoods and low levels of employment. 135At the present time the county financial} of programs that have educational components. We set policy that supports the New York State Regents Plait Strengthening Students' Understudy of one another, and the culture of, and the world in those educational components. EDUCATION NEEDS OF THE ECONOMICALLY DISADVANTAGED STUDENT AND FAMILY The Education Committee recognizes that a large number of African-American families in Westchester County have children who graduate from high school. In addition, large percentages of African-American Students are attending and graduating from college. (See Table 7) On the other hand, students in economically disadvantaged families are three times more likely to drop out than students from families with higher economic status; they're also more likely to be under employed and unemployed. If one examines the labor market problems of African Americans in New York State and the County, the correlate of educational differences must be examined. (See Figure 10) The changing structures of the urban/suburban economy coupled with the decline in the growth of ‘real wages since 1973 has resulted in an uneven incidence and concentration of poverty. Statistics indicate that the African-American family is the group 136TABLE 7 YEARS OF SCHOOL COMPLETED, PERSONS 25 YEARS OF AGE AND OLOER, BY RACE AND SPANISH ORIGIN, WESTCHESTER COUNTY, 1980 Total Persons 25 white Black | Anericen| Asians* || Spanien Youre and Over Origint 554,740 490,774 | 57,807 sD 9,741 || 23,708 Years of School Completed Pere epeceue 1 Elementary Ba 27 18.4 63 6.2 Bb High School 1-3 Yoo 8 8.7 we a9 15.2 High School 4 Yours 322 32.2 359 3.0 164 2.7 College 1-3 Yours 15.0 15.0 164 19.5 13.4 4.0 College 4 Youre B.0 29.5 m9 23 60.4 28 ‘+ Includes Eskimos and Aleutians. ‘* Includes Pacific I + Spanish Origin persons may be of any race. Source: U.S, Bureau of the Census and Westchester County Department of Planning woop 10/85 An examination of municipal date (Table 14) shows that two cities (Rye and White Plains) had a proportionately higher number of college-educated residents than did the County as a whole. INCOME AND POVERTY This was also true from more than half the villages and virtually all the towns. There is a strong correlation between above-average education levels and above-average income on a municipal basis. As a foundation for examining income and poverty (as well as other census- related topics), it is dmportant to note the distinction between "household" A household is any occupied housing unit. implies two or more persons related by birth, marriage, or adoption, residing and "family." in the same h jousing unit. 137 A family householdFIGURE 10 Looking for Work: Teen-age Employment by Race, 1985 60% 40% 20% ‘Sources: Education Commnaninn of the Sinan 138 White Hispanic BlackEDUCATION most adversely affected by lack of income due to underemployment and unemployment. In all labor market related problems of African Americans, the correlates of education differences must always be examined. Thus, the mean earnings of African-American households are less than the mean earnings for white households when examined by race, educational level, and family type. Based on 1980 census, for example, mean earnings for an African-American married couple, with the family head having a college degree, there was $8,000 a year less income than the mean earnings for a similar White married couple. Other studies also reveal that the cycle of lower income continues for the African-American family, because school age youths consistently perform below the levels of other youths across ethnic, racial and minority lines and, they are more apt to drop out of school. (See Figures 11, 12 and 13) Other Supporting Dat: - Among African-American students who entered ninth grade in the fall of 1981, 54% failed to graduate with their class in 1985. - In contrast 70% of White youth graduated with their class in 1985 (Source: Black New Yorkers - Status Report - Vol. 2, January 1989, pg. 33). Parenting Skills and Educational needs of Single Parent Families “Families...especially those in poverty are in greatest jeopardy in America today," said T. Berry Brazelton. 139FIGURE 11 aBewwaareg HISPANIC abejuasi9g 176198), 1986 1971 BLACK ebeyuess0g 1986 1981 WHITE abe u2DI09FIGURE 12 ce UEETTTTTTT se TTT wee seosene CETTE TTTT vee TTT Biaex [TT TTT 1985-86 Seo TET Total TTT TTT ™) sxe [PUPTPT PTT] ss-05 vesome FTPTTTTT TTT ve TUTTO ace (EPPTTTTE[ ‘n-20 saoane PTT PTPTTT veo PETE sone FTOTTTTTTMTTTTTTT ——ro8s-6 14d Ages Tous! iacx Hispane | Back Hispanic Age13 Back Hispanic Towa! iack I Hispanic Ages7 1961-82) 1985-85 1981-2) Tou! Black Hispanic Total | 7381-82| Black "98s-26|FIGURE 13 THE ACHIEVEMENT GAP: SAT Averages by Ethnicity 1975-76 to 1983-84 Verbal Test Scores ‘Averae test seore a0 SoreTe teTeT terete avers taraagweeoet—(taera2 | T802E] 198-84 Schoo! years Math Test Scores ‘Average test score Asler-american 0 ‘osve W767? ta7r-78

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