GUAM STATE OFFICE ON AGING

DIVISION OF SENIOR CITIZENS

DEPARTMENT OF PUBLIC HEALTH AND SOCIAL SERVICES

GOVERNMENT OF GUAM

GUAM STATE OPERATIONAL PLAN

ADULT PROTECTIVE SERVICES

2021-2024

130 University Drive, Suite 8

University Castle Mall, Mangilao Guam 96913

Tel: (671) 735-7415 or 735-7421

Fax: (671) 735-7416

Email: Biba.SeniorCitizens@dphss.guam.gov
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TABLE OF CONTENTS

Item Page Number

I. Agency and Contact Information 2

Mission Statement 3

Vision for Adult Protective Services

Guiding Principles / Core Values

II. Introduction 4

III. Program Overview 5

A. Background

B. Bureau of Adult Protective Services 6

C. Purpose 7

D. Population Served

E. Major Objectives 8

F. Short-Term Goals

G. Adult Protective Services Activities 9

H. Adult Protective Services Staffing

I. Functions and Activities of APS Social Workers 10

J. Statistical Information on the Number and Type of 

Reports Received and Program Need

11

K. Getting Started and Identifying Goals 13

IV. Targeted Goals for Program Improvement 19

V.Logic Model Framework for Targeted Improvements 20

VI.Budget / Spending Plan for ARPA Funds Semi-

 Annually

24
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I. Agency and Contact Information 

State/Territory/District: U.S. Territory – Guam U.S.A.

Name of Federal 

Awarding Agency:

U.S. Department of Health and Human Services

Administration for Community Living

Contact Information:

Name of Pass-Through 

Entity:

Guam State Office on Aging

Division of Senior Citizens

Department of Public Health and Social Services

Contact Information for 

Federal Awarding 

Agency Project Officer:

Aging Services Program Specialist

U.S. Department of Health and Human Services

Administration for Community Living 

Ms. Elizabeth J. Petruy, MPA

Telephone: (202) 260-0868

Email: elizabeth.petruy@acl.hhs.gov

Contact Information for 

[Agency] Authorizing 

Official: 

Director

Department of Public Health and Social Services

Mr. Arthur U. San Agustin, MHR

Telephone: (671) 922-2503/04

Email: arthur.sanagustin@dphss.guam.gov

Contact Information for 

[Agency] Project 

Director:

Senior Citizens Administrator

Division of Senior Citizens

Ms. Charlene D. San Nicolas, MPA

Telephone: (671) 735-7415 or (671) 735-7421

Email: charlene.sannicolas@dphss.guam.gov

Budget Allocation: $266,000.00*

*Includes ARPA 1 ($86,060) + ARPA 2 Covid Funds ($179,940) 

Projected to be received

Timeline: American Rescue Plan Act (ARPA) of 2021, Grant 1

August 2021 – September 2023

ARPA 1 – Grant No. 2101GUAPC6 – $86,060.00

American Rescue Plan Act (ARPA) of 2021, Proposed Grant 2

August 2022 – September 2024

ARPA 2 – Grant No. 2101GUAPC6 – $ 86,060.00

 Grant No. 2101GUAPC5 – $ 93,880.00

 $179,940.00
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GUAM STATE OFFICE ON AGING

Division of Senior Citizens

Guam State Operational Plan

Adult Protective Services

2021-2024

OUR MISSION STATEMENT

To develop and maintain a coordinated system of protective services to intervene 

or prevent further abuse to seniors and adults with a disability; and to provide or 

arrange for and monitor the provision of services necessary to safeguard and 

ensure the clients well-being; and preserve and stabilize family life wherever 

appropriate. 1

OUR VISION FOR ADULT PROTECTIVE SERVICES

Empowered people of healthy mind and body living in a safe environment 

throughout their lifetime.

OUR GUIDING PRINCIPLES / CORE VALUES

To provide protective services that includes Intake, Investigation, Aftercare, 

Emergency Protective Shelter Services for victims of abuse who are in imminent 

danger, and a 24-7 Crisis Intervention Hotline.

To represent and safeguard the interest and integrity of seniors and adults with 

disabilities who are victims of abuse.

To coordinate and collaborate with government agencies, community 

organizations and families for the provision of care of seniors and adults with 

disabilities when addressing protective services issues.

To conduct investigations at a 100% performance level of appropriate referrals 

received.

To conduct Adult Protective Services specific Outreach Presentations.

1 DPHSS, Senior Citizens, Budget Act, page 5-42
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Guam State Office on Aging

Division of Senior Citizens

Guam State Operational Plan

Adult Protective Services 2021-2024

II. Introduction

On April 1, 2021, the Department of Public Health and Social Services, Division of Senior Citizens 

(DPHSS, DSC) received the APC5 Coronavirus Response and Relief Supplemental (CRRSA) 

supplemental funding for Adult Protective Services (APS) under the Security Act (SSA) Title XX 

Section 2042(b) formula allotment grant, Grant Number 2101GUAPC5 (CRRSA funds) totaling 

$93,880.00 from the U.S. Department of Health and Human Services (DHHS), Administration for 

Community Living (ACL). This is a historical grant awarded for APS activities funded with 100% 

federal funds. The purpose of this grant is to provide one time funding to support preventing, 

preparing for and responding to Coronavirus Disease 2019 (COVID-19).

On August 3, 2021, DPHSS, DSC received the APC6 American Rescue Plan (ARP) for Adult 

Protective Services (APS) under the Social Security Act (SSA) Title XX Section 2042(b) formula 

allotment grant, Grant Number 2101GUAPC6 (FY21 ARPA funds) totaling $86,060.00 from the 

U.S. Department of Health and Human Services, Administration for Community Living. This is 

the second 100% federal grant awarded to support Guam APS activities. The purpose of this grant 

is to provide an opportunity to enhance and improve APS services and to expand the ability of 

APS to investigate allegations of abuse, neglect, and exploitation.

Both grants were received in response to Guam’s APS Grant Application submissions. Guam 

anticipates receiving ARP2 funds, or “ARPA 2,” upon approval by ACL and Congress to be 

released this fiscal year (FY 2022) before September 30, 2022. The ARPA 2 funds is projected 

for $179,940.00 and is based on the Fiscal Year 2022 allocations Guam received by adding the amount 

allocated in the CRRSA funds to the amount allocated in the FY21 ARPA funds. The infusion of these 

future additional funds will supplement existing Adult Protective Services activities and enhance 

and expand additional program needs. The total dollar amount in federal grants commitment to 

the Adult Protective Services Program is anticipated to receive totaling $266,000.00.

The DPHSS, DSC developed a 3–5-year plan for improving and enhancing Adult Protective 

Services system at the local level. The plan is required to be submitted to ACL within the first 6 

months of receiving the award. The strategic plan provides the steps and goals to enhance APS

on Guam. The grant funds will be used for activities consistent with the Elder Justice Act Section 

2042(b); Section 9301 of the American Rescue Plan Act of 2021; and guidance provided by ACL, 

including but not limited to:

1. Establishing or enhancing the availability for elder shelters and other emergency, shortterm housing and accompanying “wrap-around” services;
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2. Establishing, expanding, or enhancing state-wide and local-level elder justice networks;

3. Working with local adult protective service efforts;

4. Improving or enhancing existing APS processes;

5. Improving and supporting remote work;

6. Improving data collection and reporting at the case worker; local and state level in a manner 

consistent with the National Adult Maltreatment Reporting Systems (NAMRS);

7. Establishing new or improving existing processes for responding to alleged scams and 

frauds;

8. Conducting and enhancing community outreach;

9. Providing goods and services to APS clients, as appropriate;

10. Acquiring personal protection equipment and supplies;

11. Compensate Social Workers for extended hours/over-time for staff, hiring temporary staff, 

and associated personnel costs;

12. Conducting and enhancing Training;

13. Assisting APS clients secure the least restrictive option for emergency housing and or 

alternative housing, and or coordinating care transitions, as appropriate.

III. Program Overview

A. BACKGROUND

In 1969, the Office of Aging, referred to as the “Office”, forerunner of the State Office on Aging, 

existed as a section under the Department of Public Health and Social Services, Division of Social 

Services. The Office worked closely with the Guam Association of Retired Persons through its 

Servicio Para I ManAmko, a non-profit organization, for the provision of aging services. Funding

to support the activities of the Office on Aging gradually became available through Title III grants 

funded through the Older Americans Act of 1965, as Amended. As a recipient of Federal funds 

under the Older Americans Act, the Office of Aging was also recognized as Guam’s State Agency 

on Aging.2

On August 28, 1978, Guam Public Law 14-139 created the Division of Senior Citizens, State 

Office on Aging (SOA) within the Department of Public Health and Social Services. The DSC is 

responsible for coordinating activities related to older persons on Guam. In accordance with Guam 

Public Law 14-139, DSC plans, coordinates and implements programs for senior citizens through 

a formal support system to address their needs and challenges, in an effort to maintain or attain a 

dignified lifestyle, as practicable.3

A key responsibility of the SOA is the development of Guam’s Four Year State Plan on Aging for 

the period of October 1, 2019 through September 30, 2023.4 Guam’s Four Year State Plan on 

2

http://dphss.guam.gov/wp-content/uploads/2019/09/Guams-Four-Year-State-Plan-on-Aging-2020-2023-Approved.pdf

3 DPHSS, DSC FY2022 Budget Request, page 5-40

4

http://dphss.guam.gov/wp-content/uploads/2019/09/Guams-Four-Year-State-Plan-on-Aging-2020-2023-Approved.pdf
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Aging, the “Plan”, serves as the blueprint to provide direction in planning and implementing longterm initiatives for our islands elders in accordance with the Act. The plan reflects and responds 

to the needs of an increasing number of older individuals with the aim to help Guam’s aging 

community maintain independence and dignity in their homes and communities, and address the 

reality of fiscal and resource limitations. The Plan represents the network of providers and various 

partners the State Office on Aging, the State Agency on Aging and the Bureau of Adult Protective 

Services work with in the provision of long-term services and supports made available for the 

island elders on Guam.

The Guam State Office on Aging is charged with the responsibility of administering Title III 

Supportive Services which is comprised of six distinct programs, the Elderly Nutrition Program 

which is comprised of two distinct programs, Preventive Health, and the National Family 

Caregiver Support Program; Nutrition Services Incentive Program; and Title VII Elder Abuse and 

Ombudsman Programs, as mandated by the Older Americans Act (OAA) of 1965, as Amended. 

In addition, the Guam SOA administers the Guam State Health Insurance Assistance Program, the 

Senior Medicare Patrol Project, the No Wrong Door and the Aging and Disabilities Resource 

Center Software and Services Initiatives.

Through the various programs administered by the Guam SOA, services have included working 

with and advocating for persons with disabilities under the age of 60 through the efforts of the 

Bureau of Adult Protective Services’ contracted service provider, the National Family Caregiver 

Support Program, the Guam Senior Medicare Patrol Project, and the Guam State Health Insurance 

Assistance Program. 

The State Agency comprises of the Bureaus of Administrative Support, Community Support and 

Program Administration and Development along with the Bureau of Adult Protective Services 

which assist the State Office in carrying out its responsibilities. The Administration for 

Community Living formerly known as the Administration of Aging programs promotes older 

people to age in place, delaying if not altogether preventing premature institutionalization, with 

dignity, independence, and integrity.

B. BUREAU OF ADULT PROTECTIVE SERVICES

On January 30, 1989, the enactment of Guam Public Law 19-54, as amended by Guam Public Law 

21-33, created the Adult Protective Services (APS) Unit within the Division of Senior Citizens. 

Guam Public Law 19-54 includes the mandated reporting of alleged abuse, neglect and 

exploitation, a central registry system to record cases, definitions of abuse and provides for a 

comprehensive service delivery system remains an unfunded mandate since the passing of Guam 

Public Law 21-33 nor was it funded in prior Fiscal Years 2021 and 2022. 

Subsequently, on December 28, 2012, Guam Public Law 31-278 changed the APS Unit to the 

Bureau of Adult Protective Services and maintained the responsibility of receiving and 

investigating all reports of abuse against the elderly, 60 years of age and older, or adults with a 
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disability, 18 to 59 years of age, pursuant to law which include and is not limited to, reports of 

abuse in facilities operated by the department and other public or private agencies and in private 

residences.

An Adult with a Disability is a person eighteen (18) years or older who has a physical or mental 

impairment which limits one (1) or more major life activities; or has a history of, or has been 

classified as having an impairment which substantially limits one (1) or more major life 

activities. A Major Life Activity includes, but are not limited to: caring for oneself, performing 

manual tasks, standing, walking, seeking, hearing, eating, sleeping, lifting, bending, speaking, 

breathing, learning, reading, concentrating, thinking and working.

Guam Public Law 31-278 amended further provided:

• Clearer definitions on the types of abuse;

• Expanding on the list of professionals under mandated reporters to include Emergency Medical 

Service providers, non-emergency medical transport providers, medical and allied health 

providers, personnel of banking or financial institutions, pension providers and practicum 

students in the health and human services;

• Defined the organizational and personnel structure of the Bureau of Adult Protective Services;

and

• New provision was added creating the “Bureau of Adult Protective Services Fund” §2954. 

C. PURPOSE

The Bureau of Adult Protective Services (BAPS) is mandated to receive and investigate all reports 

of abuses against the elderly or adults with a disability; these specifically include but are not limited 

to reports of abuse in facilities operated by public or private agencies and in private residences. 

The types of abuse reportable to the BAPS include: abandonment, physical abuse, emotional or 

psychological, financial or property exploitation, neglect, self-neglect or sexual abuse. Further, 

the Bureau provides outreach, education, monitoring, and advocacy for vulnerable elders and 

adults with disabilities. (Ref. Guam P.L. 21-33)

The Bureau of Adult Protective Services also provides education, monitoring, and advocacy for 

vulnerable elders and adults with disabilities.

D. POPULATION SERVED

The U.S. Census Bureau estimates Guam’s population in 2020 is 153,8365 with 10.7% or 

10,768.52 of the total population to be seniors, age 60 and older. In 2006, the onset of “baby 

boomers” turned 60 and will continue through 2024. We are working with baby boomers seeking 

assistance to meet their long-term care needs as many of them are caring for or have cared for their 

own aged parents bringing forth the realization that institutional care is not their preferred means 

5 U.S. Census Bureau, 2020 Guam Census Housing and Population Counts
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of care should they require supervised care. Baby boomers are seeking alternatives that will 

enhance their physical, social and emotional well-being through personal care and assistance so 

they are able to continue living in their own homes as they age.

“Aging in place” is an approach to long-term care that promotes independent living, strengthening 

family supports, addressing home modifications and other long-term services and supports, so that 

older persons can continue living in their own homes or in a home-like setting in their 

communities, even in the event of declining mental and physical abilities.

The DPHSS, DSC strives to empower Guam’s senior community to make person-centered

decisions, provide support to high-risk clients, their families and caregivers to delay the onset of 

institutionalization and to provide evidence-based prevention programs to reduce the risk of 

disease, disability and injury among older individuals. The national perspective for older 

individuals, as we fondly refer to as “our Mañaina-ta, or Manamko”, to age in place and to provide 

options and choices for home and community-based services resonates with the local landscape of 

our cultural practices to care for our elders in their homes; ensuring program services are culturally 

and linguistically appropriate while maintaining the dignity, integrity and independence of older 

individuals.6

Adult Protective Service clients are:

• Alleged to have been abused, neglected or exploited

• Older Individuals, age 60 and older or Individuals with a disability, age 18-59 with a 

disability

• Reside in the community (e.g., private residence/home, long-term care facility, emergency 

protective shelter or homeless)

E. MAJOR OBJECTIVES 

Major objectives of the Bureau of Adult Protective Services are to develop and maintain a 

coordinated system of protective services to intervene or prevent further abuse to the elderly, age 

60 years or older and adults with a disability, age 18-59 years; and to provide or arrange for and 

monitor the provision of services necessary to safeguard and ensure the clients’ well-being; and 

preserve and stabilize family life wherever appropriate. 

F. SHORT-TERM GOALS

1. To provide protective services that includes Intake, Investigation, Aftercare, Emergency 

Protective Shelter Services for victims of abuse who are in imminent danger, and a 24-7 

Crisis Intervention Hotline.

2. To represent and safeguard the interest and integrity of seniors and adults with disabilities 

6 http://dphss.guam.gov/wp-content/uploads/2019/09/Guams-Four-Year-State-Plan-on-Aging-2020-2023-Approved.pdf
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who are victims of abuse.

3. To coordinate and collaborate with government agencies, community organizations and 

families for the provision of care of seniors and adults with disabilities when addressing

protective services issues. 

4. To conduct investigations at a 100% performance level of appropriate referrals received.

5. To conduct Adult Protective Services specific Outreach Presentations.

G. ADULT PROTECTIVE SERVICES ACTIVITIES

The Bureau of Adult Protective Services in addition to receiving and investigating APS referrals, 

administers the Guma Serenidad Program which provides a comprehensive management, 

operations, and maintenance of emergency protective shelter with a 24-hour Crisis Intervention 

Hotline (CIH) for seniors, age 60 and older, and adults with a disability, age 18-59, who are victims 

or alleged victims of abuse and are in immediate or imminent danger and require temporary shelter 

and support to protect them from further abuse or neglect. The CIH receives, responds, and 

manages reports of suspected elderly or adults with a disability abuse and neglect. BAPS referrals

received by the CIH between the hours of 8:00 a.m. through 4:30 p.m., Monday through Friday, 

except on recognized Government of Guam Holidays and weekends are managed by the Guma 

Serenidad Program staff. The program is contracted through emergency procurement until a new 

bid is awarded.

BAPS also administers the Office of the Long-Term Care Ombudsman and activities related to 

Elder Abuse Prevention, Title VII programs. The Office of the Ombudsman provides services to 

the elderly at a Long-Term Care Facility and Skilled Nursing Unit, and Adult Day Care Centers. 

Pre-Covid the Ombudsman visits elderly residents to meet with them and/or their family members 

to address, advocate, and resolve concerns for the protection of the resident’s health, safety, and 

welfare ensuring the rights of residents are safeguarded.

H. ADULT PROTECTIVE SERVICES STAFFING

BAPS has several unfunded positions, namely a Human Services Administrator, Social Worker III

for Intake and Aftercare, and a Program Coordinator III for education and outreach efforts, thus, 

has not been fully staffed.

No. of Staff Position Title Status

One (1) Human Services Administrator Unfunded

One (1) Social Services Supervisor I

Three (3) Social Worker III - Case Investigation Unit

One (1) Social Worker III – Intake and Aftercare Unit Unfunded

One (1) Program Coordinator III – Education and Outreach Unit Unfunded
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In FY21, BAPS was staffed with a Social Services Supervisor I and a lone Social Worker III to 

carry out the duties and mandated responsibilities. On the onset of the fiscal year, the lone Social 

Worker III was on extended leave of absence and returned to duty on August 2021. As a result, 

BAPS operated solely with the coordination of the Social Services Supervisor I and the Program 

Manager of the Guma Serenidad-Emergency Protective Shelter to address APS referrals. The 

bureau actively recruited for three (3) positions to include: One (1) Program Coordinator IV and 

two (2) Social Worker III. 

Current filled positions include:

1. 1 - Social Services Supervisor I

2. 1 - Program Coordinator IV 

3. 3 - Social Worker III

The Social Services Supervisor I maintained Outreach and Prevention efforts to educate and 

inform government, private and non-profit entities on abuse and neglect of our elderly and adults 

with a disability of Adult Protective Services and prevention.

The Program Coordinator IV onboarded on April 2021. The staff is assigned grants management 

of Older Americans Act (OAA) Title VII Vulnerable Elder Rights Protection Activities, namely 

Elder Abuse Prevention and Ombudsman, Title III-B Legal Assistance Services, CRRSA and 

ARPA federal grants, and the Adult Protective Service-Guma Serenidad Emergency Protective 

Shelter program.

One (1) Social Worker III onboarded on August 2021. A portion of the staff time is spent on 

Ombudsman related duties. A portion of funds are used for salaries and benefits and other program 

needs. Staff advocates to address and resolve concerns of the elderly in regards to the protection 

of the resident’s health, safety and welfare and to ensure the rights of residents are safeguarded. 

The APS referrals for interventions continues to be received at a steady pace despite the ongoing 

Pandemic crisis and staff adhering to Executive Orders signed by the Governor of Guam. The 

BAPS provides assessments through telephone contacts as we continued to be in compliance with 

the response to the mandates placed upon our community during this Pandemic, as appropriate. 

The restrictions and mitigation practices were upheld by the Social Workers to include social 

distancing and mask wearing to coordinate services and face-to-face interactions. 

I. FUNCTIONS AND ACTIVITIES OF APS SOCIAL WORKERS

A primary function of APS Social Workers is case investigation. This begins upon the receipt of a 

referral of alleged abuse or neglect. The process in which the APS Social Worker(s) meets with 

the client to assess the situation and to proceed with an Investigation on the allegation(s) of abuse 

or neglect. There is a case plan that is developed which addresses the client’s needs in order to 

provide interventions, if not resolutions to the abusive situation.
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Intervention strategies used by the APS Social Workers include by are not limited to: crisis 

intervention, education, multi-disciplinary team meetings, individual and family sessions, 

networking, collaborating with other government and private agencies to provide formal support 

services to assessing for the need for protective shelter.

PROJECT ACTIVITIES

The Bureau participated in the following projects for this reporting period to expand and enhance 

program activities, as follows:

NATIONAL ADULT MALADAPTIVE REPORTING SYSTEM (NAMRS)

In March 2021, BAPS submitted FY2020 Agency Component and Key Indicators data to the 

National Adult Maladaptive Reporting System (NAMRS), a national reporting system for Adult 

Protective Services program. The goal of NAMRS is to provide consistent, accurate national data 

on the abuse and exploitation of older adults and adults with disabilities, as reported to APS 

agencies.

SENIOR CITIZENS HOUSING TASK FORCE

The Office of Senator Amanda L. Shelton convened its Inaugural Meeting on October 21, 2021 

via Zoom. In accordance to Public Law 35-140, known as the Senior Citizens Housing Task Force 

Act of 2020, established the Senior Citizen Housing Task Force composed of a nine (9) member 

task force of government officials, community stakeholders, and housing experts charged with 

assessing senior housing availability and needs. The BAPS participates and continues to provide 

input to the Task Force, as appropriate.

HUMAN TRAFFICKING TASK FORCE

The BAPS continues to participate in the efforts of the Human Trafficking Task Force by 

participating in meetings, as appropriate. The BAPS participation will include a discussion on 

collaboration for the National Slavery & Human Trafficking and National Stalking Prevention & 

Awareness Month which will be held in January 2022.

STOP VIOLENCE AGAINST WOMEN FORMULA GRANT PROGRAM

The BAPS participates in the Guam State Implementation Plan to strengthen and advocate for 

Elderly victims of abuse in response to violence against women.

J. STATISTICAL INFORMATION ON THE NUMBER AND TYPES OF REPORTS

 RECEIVED AND PROGRAM NEED

In FY 2021, the BAPS responded to 243 Unduplicated Referrals/Intakes, averaging 20 cases per 

month. Of the 243 Referrals/Intakes received 233 were determined to be appropriate for 

investigation by BAPS and 10 were determined to be an Inappropriate Referral/Intake. 

The Referrals/Intakes received by BAPS are categorized as Elderly, Elderly with a Disability and 

Adult with a Disability as illustrated in Table 2. Types of Referrals.7

7

https://dphss.guam.gov/wp-content/uploads/2021/12/FY-21-APS-ANNUAL-REPORT-Legislative-Speaker-12-30-21.pdf
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Of the 233 appropriate Referrals/Intakes received:

• 169 or 73% were Elderly [comprised of Elderly and Elderly with a Disability (Dual)]

• 64 or 27% were Adults with a Disability

Table 1. Types of Adult Protective Service Referrals

Referral Type Elderly

Elderly with 

a Disability

Adult with a 

Disability Year-to-Date Percentage

Financial/Property 

Exploitation 54 16 8 78 34%

Physical Abuse 10 11 25 46 20%

Emotional/Psychological 

Abuse 21 12 10 43 18%

Neglect 12 11 2 25 11%

Self-Neglect 8 5 6 19 8%

Abandonment 2 3 3 8 3%

Other 2 2 3 7 3%

Sexual Abuse 0 0 7 7 3%

Total Referrals 109 60 64 233 100%

47% 26% 27%

BY THE NUMBERS:

• 78 or 34% were for Financial/Property Exploitation

• 46 or 20% were for Physical Abuse

• 43 or 18% were for Emotional/Psychological Abuse

• 25 or 11% were for Neglect

• 19 or 8% were for Self-Neglect

• 8 or 3% were for Abandonment

• 7 or 3% were for Other

• 7 or 3% were for Sexual Abuse

The BAPS conducted 233 case investigations, these investigations yielded 5 or approximately 2% 

as substantiated and 228 or approximately 98%, although have been found to be 

inconclusive/unsubstantiated have been referred for support services through the contracted Case 

Management and/or other Title III aging programs, as appropriate, and the Department of 

Integrated Services for Individuals with Disabilities for integrated services through the provision 

of vocational rehabilitation services for individuals with a disability.

A review of the 233 appropriate Referrals/Intakes received, revealed the BAPS staff responded to 

a range of abuses against the elderly and adults with a disability. The BAPS serves as the entry 
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point into Guam’s long-term services and support system for elderly or adults with disabilities and 

APS staff continue to meet the mandates of Public Law 31-278 by providing intervention in 

abusive situations and assisting clients and their families in obtaining supportive social services, 

as practicable. 

The APS Referrals received for the fiscal years from 2018 to 2021 are ranked by the top three (3) 

types of abuse investigated, as illustrated in Table 2. Highest Type of Abuse.

Table 2. Highest Type of Abuse 

Fiscal Year 1st Highest Type of Abuse 2nd Highest Type of Abuse 3rd Highest Type of Abuse

FY2021 78 Financial/Property Exploitation 46 Physical Abuse 43 Emotional/Psychological Abuse

FY2020 97 Emotional/Psychological Abuse 74 Financial/Property Exploitation 35 Neglect

FY2019 128 Financial/Property 78 Emotional/Psychological Abuse 72 Physical Abuse

FY2018 91 Financial/Property 53 Neglect 49 Emotional/Psychological

In some cases, investigated by BAPS staff, not all suspected abuse and neglect cases were

intentional and may be the result of caregiver stress burnout and or a lack of skills necessary to 

cope with caring for their aging elderly parents or family member who is an adult with a disability. 

Through BAPS staff intervention, caregivers are provided with information on caregiving and 

appropriate referrals to other relevant support systems, thus, the needs of the clients are met thus, 

alleviating the abusive situation. 

However, in high-risk cases involving an elderly or adult with a disability who had suffered serious 

abuse are forwarded to the Attorney General’s Office for their review and disposition.

An important component of the BAPS is the Guma Serenidad with a Crisis Intervention Hotline 

Program which provides protective services shelter 24 hours a day, seven days a week, ensuring

that elderly and adults with disabilities have services accessible to them. The Guma Serenidad 

emergency protective shelter affords a safe haven for clients who are in imminent danger and 

where they receive or access optional services that address social, behavioral health, and physical 

needs. Without the protective shelter in place, clients of BAPS would most likely to experience, 

homelessness8, remain in the abusive environment or be placed into a homeless shelter until 

alternate stable living arrangements are made. This Protective Services Shelter is 100% locally 

funded.

K. GETTING STARTED AND IDENTIFYING GOALS

The grant from the U.S. Department of Health and Human Services (DHHS), U.S. Administration 

for Community Living (ACL) will assist in the development and enhancement of the Adult 

Protective Service (APS) State Operational Plan. 

8 Homelessness is lacking stable and appropriate housing. People can be categorized as homeless if they are living on the streets, moving

between temporary shelters, including houses of friends, family and emergency accommodations; living in private boarding houses without a 

private bathroom or security of tenure. Wikepedia
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The Division of Senior Citizens (DSC) recognizes the need for a plan that is responsive to the 

current environment, resources, and issues presented in the number of growing cases of abuse, 

neglect and financial exploitation cases. 

The plan incorporates input from the Strengths, Weaknesses, Opportunities, and Threats (SWOT)

- Adult Protective Service Survey Request form that was sent to staff, program providers, internal 

and external aging network partners. 

The initial internal planning from the SWOT from the APS TARC and Guam’s assigned subject 

matter experts (SMEs) provided the BAPS with the foundation to identify and focus program 

resources to optimize and enhance services within the 3–5-year operational plan.

In November 2021, the BAPS developed its first comprehensive APS State Operational Plan.

 

The planning process included: 

1) Developing a communication plan with the U.S. Administration for Community Living 

(ACL) contracted subject matter experts on developing a draft APS State Operational Plan; 

2) Collecting, reviewing, and analyzing input from aging network partners through a SWOT 

- Adult Protective Services Survey Request; and 

3) Incorporating feedback from DPHSS management and staff, aging network partners, and 

stakeholders into the plan. 

IV. Targeted Goals for Program Improvement

There are challenges we face of which funding is a major issue to be able to expand services in 

order to meet the increasing and changing demands expected of the APS services provided. While 

most, including the government, are compassionate towards the APS program, it is not exempted 

from budgetary constraints and setbacks. Therefore, the goals of the Plan reflect this reality.

The following goals to be obtained to move the APS program to meet its vision to empower people 

of healthy mind and body living in a safe environment throughout their lifetime. 

TARGETED GOALS 

Goal 1: To provide protective services that include Intake, Investigation, 

Aftercare, Emergency Protective Shelter Services for victims of abuse

who are in imminent danger, and a 24-7 Crisis Intervention Hotline.

Goal 2: To represent and safeguard the interest and integrity of seniors and adults 

with disabilities who are victims of abuse.
Guam APS State Operational Plan (2021-2024) - Page 15 of 19

Goal 3: To coordinate and collaborate with government agencies, community

organizations, and families for the provision of care of seniors and adults 

with disabilities when addressing protective service issues.

Goal 4: To conduct investigations at a 100% performance level of appropriate

APS referrals received.

V. LOGIC MODEL FRAMEWORK FOR TARGETED PROGRAM

IMPROVEMENTS

ARPA 1 PROJECTS

Purpose/Needs 

to be filled by 

ARPA Funds

Inputs (Resources 

Deployed)

Activities Outputs 

from 

Investment

Short-Term 

Outcomes

Long-Term 

Outcomes

Need for 

personnel.

$72,717.69

(One (1) Fiscal Year 

of Funding)

Salaries - $40,762

Over-Time -

$2,500 

Benefits - $17,409

Other

Administrative -

May be reprogramed 

- $12,046.69

ARPA 1 

Project 1

Coordinate 

with DPHSS 

Human 

Resources to

hire Social 

Worker APS 

FTE position 

and staff 

extended 

hours

Additional 

benefits, as 

applicable

New person 

hired and 

overtime 

hours 

available by 

March 31, 

2022.

Temporary 

staff Social 

Worker II 

employee in 

place

Crisis 

response in 

place

Allocating 

resources 

more 

efficiently 

(SW II to 

perform intake 

SW III two 

perform field 

work).

Improve existing 

APS processes 

to provide more 

timely service to 

clients and 

victims.

Need market 

research to 

identify issues 

around 

Credentialing, 

Public Outreach, 

Short Term 

Shelter and 

Technology 

Infrastructure 

issues.

$8,742.31

Market Research 

ARPA 1 

Project 2

Research 

Project

Inputs to 

ARPA 2 

Training and 

Community 

Outreach 

Projects by 

year end 

2022.

Inputs needed 

for ARPA 2 

Training and 

Community 

Outreach 

projects are in 

place. 

APS program 

has better 

understanding 

of Short-Term

Shelter and 

Software 

issues.

Clients / Victims 

better served by 

FEMA Trained 

case workers 

and by greater 

public 

awareness of 

Abuse, Neglect 

and Exploitation 

issues and APS 

services.
Guam APS State Operational Plan (2021-2024) - Page 16 of 19

ARPA 1 PROJECTS

Purpose/Needs 

to be filled by 

ARPA Funds

Inputs (Resources 

Deployed)

Activities Outputs 

from 

Investment

Short-Term 

Outcomes

Long-Term 

Outcomes

Need to replace 

consumable 

supply and 

materials.

$1,600.00 Total

$100 in Vouchers 

for items such as 

emergency food and 

Nourishment.

$600 in vouchers for 

PPE for Staff and 

general office 

supplies and fuel for 

vehicle.

ARPA 1

Project 3

Prepare

Requisition for 

emergency 

nourishment 

and PPE and 

office supplies.

Support 

provided 

emergency 

nourishment 

that the 

government 

had not 

provided in 

the past.

Consumable 

for emergency 

nutrition 

assistance.

And PPE 

needs of staff 

and client in 

place as 

needed basis. 

Acquire 

personal 

protection 

equipment and 

supplies for 

program use, 

as appropriate, 

once in-person 

investigations 

resume.

Provide good 

and services to 

APS clients such 

as nourishment, 

refreshment, and 

other supports.

Support a 

healthy 

workforce to 

continue to 

assist APS 

workload and 

respond to crisis

emergency 

situations. No 

COVID 

infections from 

field or inperson contact.

Need to replace 

outdated 

equipment.

$3,000.00 ARPA 1

Project 4

Procure

Computer 

workstation

Have a 

workstation 

in place in 

2022

Procure 

computer 

workstation to 

support APS 

Social Worker

APS Social 

Worker is better 

equipped to 

manage 

workload 

through an 

efficient, 

automated and 

accountable 

system
Guam APS State Operational Plan (2021-2024) - Page 17 of 19

ARPA 2 PROJECTS

Purpose/Needs 

to be filled by 

ARPA Funds

Inputs (Resources 

Deployed)

Activities Outputs 

from 

Investment

Short-Term 

Outcomes

Long-Term 

Outcomes

Support APS 

Workforce 

Personnel.

$145,499.40*

Salaries - $40,762 x 

2 years = 

$81,524.00

Over-Time - $6,410

x 2 years = $12,820 

Benefits - $17,409 x 

2 years = 

$34,818.00

Other 

Administrative -

May be reprogramed 

- $16,337.40 for 

grant administration.

*Provide up to two 

(2) Fiscal Years of 

Funding.

ARPA 2 

Project 1

Coordinate 

with DPHSS 

Human 

Resources to

hire or retain 

Social Worker 

FTE position 

and extend 

hours.

Fund Overtime for for 

after hours

APS response.

New person

hired or

Staff term

extended

until funds

fully

exhausted or

until grant 

expiration of 

September

30, 2024. 

Continue with 

minimal or no 

disruption in 

personnel 

matters

Crisis 

response in 

place

Allocating 

resources 

more 

efficiently 

APS (Social 

Worker 2 to 

perform intake 

APS Social 

Worker 3 two 

perform field 

work).

Improve existing 

APS processes 

to provide more 

timely service to 

clients and 

victims.

Need additional 

APS related 

training.

$12,000.00

Staff Development 

Training

Est. $6,000.00 cost 

per year

Approximate $1,500 

each x 4 staff = 

$6,000

Staff development 

capacity training

(Either conducted 

via remote and or inperson).

ARPA 2

Project 2 

Contractual 

Services

costs for 

current and 

new APS 

employees on 

conducting 

investigations, 

interviews, 

and 

documentation 

during 

COVID-19, 

including 

certifying and 

providing 

continuing 

education.

Have remote 

or in-person 

Training 

taken by 

September 

30, 2023.

Increase staff

competency 

level.

Highly trained

staff to manage

APS workload

more effectively

for better client

focused

outcomes.
Guam APS State Operational Plan (2021-2024) - Page 18 of 19

Purpose/Needs 

to be filled by 

ARPA Funds

Inputs (Resources 

Deployed)

Activities Outputs 

from 

Investment

Short-Term 

Outcomes

Long-Term 

Outcomes

Inform public 

about APS 

program and 

capabilities.

Increase 

collaboration 

with partners on 

Financial 

Exploitation.

$17,300.00

Community 

Outreach 

Engagement Efforts 

Mass Media 

Campaign

Radio Advertising

3 - 30 second radio 

shots at $3,000 x 2 

each x 2 Fiscal 

Years = $12,000.00

Printing of brochures

$4,000.00

Video Conferencing 

Capability or 

equivalent media 

platform 

$300.00

ARPA 2 

Project 3

Contractual 

Services

Conduct 

Community 

Outreach 

campaign.

Create a 

Mass media 

campaign on 

elder abuse, 

neglect and 

or financial 

exploitation 

awareness 

on emerging 

APS trends 

through 

radio 

campaign 

efforts, 

network with 

internal and 

external 

stakeholders 

and 

information 

sharing.

Promote APS 

to

increase 

public 

awareness,

advocacy and

support.

Mass Media 

Campaign on 

Trending APS 

cases

reporting for 

vulnerable 

underserved

aging

population

Refer cases to 

the Office of the 

Attorney 

General on 

growing level of 

complex 

financial fraud 

and exploitation 

cases creating 

avenue to work 

with experts and 

other agencies 

who have 

training beyond 

that of APS 

staff. 

Need to replace 

outdated 

equipment.

$5,140.60

Replacement of 

Furniture (desks and 

or chairs) deemed to 

have exceed its 

useful life.

Cabinets with key 

and lock for storage 

of client files 

inactive and active 

files to keep within 

retention period.

ARPA 2

Project 4

Prepare

Requisition and 

purchase 

needed office 

furniture and 

lockable 

cabinet(s).

Procure on

as needed 

basis to 

replace 

outdated 

equipment.

Annual 

inspection to 

be conducted 

on 

equipment to 

determine 

condition.

Functional 

equipment and 

or furniture 

for staff 

support.

Improve existing 

APS 

infrastructure 

with additional 

funding source.

Enhance APS 

workers office

environment.

Confidential 

Client / Victim 

data is secured.
Guam APS State Operational Plan (2021-2024) - Page 19 of 19

BUDGET / SPENDING PLAN FOR ARPA FUNDS SEMI-ANNUALLY

FOR 3 TO 5 YEARS

ARPA 1 – FIRST GRANT ALLOCATION – AUGUST 2021 – SEPTEMBER 2023

2022 2022 2023 2023

Period 1 Period 2 Period 1 Period 2

Project 1 32,377.61$ 34,316.67$ 2,042.18$ 3,981.23$ $ 72,717.69

Project 2 Contractual Services -$ 4,371.15$ 4,371.16$ -$ 8,742.31 $ 

Project 3 400.00$ 400.00$ 400.00$ 400.00$ $ 1,600.00

Project 4 -$ 3,000.00$ -$ -$ 3,000.00 $ 

Total 32,777.61$ 42,087.82$ 6,813.34$ 4,381.23$ $ 86,060.00

Personnel Expenses

Supplies and Materials

Equipment

Description Total

ARPA 2 – SECOND GRANT ALLOCATION – AUGUST 2022 – SEPTEMBER 

2024

2023 2023 2024 2024

Period 1 Period 2 Period 1 Period 2

Project 1 36,374.85$ 36,374.85$ 36,374.85$ 36,374.85$ $ 145,499.40

Project 2 Contractual Services 6,000.00$ -$ 6,000.00$ -$ 12,000.00 $ 

Project 3 4,325.00$ 4,325.00$ 4,325.00$ 4,325.00$ $ 17,300.00

Project 4 5,140.60$ -$ -$ -$ 5,140.60 $ 

Total 51,840.45$ 40,699.85$ 46,699.85$ 40,699.85$ $ 179,940.00

Personnel Expenses

Description Total

Supplies and Materials

Equipment

SUMMARY OF ARPA 1 + ARPA 2 EXPENSE – SPEND PLAN ALLOCATIONS

2022 2022 2023 2023 2024 2024

Period 1 Period 2 Period 1 Period 2 Period 1 Period 2

Summary 32,777.61$ 42,087.82$ 58,653.79$ 45,081.08$ 46,699.85$ 40,699.85$ $ 266,000.00

Total