Assistance for vulnerable adults in New York City did not meet needs due to staff shortages and high caseloads at Adult Protective Services (APS), according to an audit released by New York State Comptroller Thomas P. DiNapoli. The report found that these staffing issues, along with weak state oversight, led to missed visits and delays in service plans, which resulted in some adults with physical or mental challenges not receiving timely help.
“Our audit found that staff shortages and high caseloads strained New York City’s Adult Protective Services,” DiNapoli said. “Case files showed missed visits, delayed eligibility decisions and late service plans. The Office of Children and Family Services needs to strengthen its oversight, so caseworkers have the support they need to help the adults who depend on these services.”
APS is operated by the city’s Human Resources Administration (HRA) and overseen by the state Office of Children and Family Services (OCFS). APS caseworkers assist adults who are unable to care for themselves or may be at risk of harm without anyone else able or willing to help them. Their responsibilities include arranging home care, helping manage finances, finding safe housing, and connecting clients with medical or social supports. Caseworkers are located in HRA field offices and contracted nonprofits across the city, often visiting clients’ homes as part of their assessments. The audit examined APS referrals and case management between April 2019 and October 2024.
The auditors reviewed 179 referrals for 80 clients from April 2019 through August 2023. They found instances of late visits, delayed service plans, missing eligibility letters, progress notes, and other documentation gaps. In seven cases, APS may have closed files before fully meeting clients’ needs. These shortcomings meant some individuals waited longer for assistance or did not receive needed services.
Staffing levels were a significant concern during this period. The number of caseworkers in HRA field offices dropped by 30% from 2019 to 2022; supervisors declined by 7%. Staffing returned to budgeted levels by October 2024 but turnover remained high—about three-quarters of caseworkers had less than two years’ experience at that time.
Caseloads varied widely among HRA offices: some caseworkers managed up to 90 cases despite a stated target range of 25 to 30 cases per worker. In a survey conducted as part of the audit in 2024, nearly 60% of respondents said staffing was insufficient while only about one-fifth felt cases were assigned efficiently. Both OCFS and HRA officials acknowledged ongoing staffing difficulties since the pandemic.
The audit also concluded that OCFS oversight was lacking when it came to addressing these problems. While OCFS reviews APS offices for compliance and can require corrective action when performance falls short, most reviews between 2019 and 2024 noted staffing issues but corrective plans rarely addressed them directly. Auditors also discovered unassigned cases or delayed services that went unflagged by OCFS.
The report included several recommendations for OCFS aimed at improving oversight and support for APS operations.
Although OCFS disagreed with certain parts of the report’s findings, it generally agreed with its recommendations. The agency noted continued challenges around hiring since the pandemic but described efforts underway—including retention bonuses, regular meetings with HRA leadership, new recruitment technology, developing best practices for managing caseloads, using performance improvement plans during reviews where problems are identified—and emphasized that while services were sometimes delayed they were ultimately provided in many cases.
The full response from OCFS is available within the published audit document.
