As the 2000 census makes clear, the United States is a diverse multicultural society. Minority groups make up roughly one-third of the Nation's population, up from one-quarter in 1990. Minority groups are the fastest growing segment of the U.S. population (U.S. Census Bureau 2001). Foreign-born people now constitute more than 11 percent of the population—an alltime high (Schmidley 2003). Show
This chapter provides the consensus panel's recommendations on how to improve the cultural competence of treatment programs by
Understanding Cultural CompetenceWhat Is Cultural Competence?Cultural competence is
A culturally competent program demonstrates empathy and understanding of cultural differences in treatment design, implementation, and evaluation (Center for Substance Abuse Prevention 1994). According to Cultural Issues in Substance Abuse Treatment (CSAT 1999a), culturally competent treatment is characterized by
It is important for administrators to understand that moving their program toward cultural competence requires a personal commitment and significant involvement from the entire staff. Cultural competence is an ongoing process of examination and change, not a goal to be attained once. To move toward cultural competence, staff members will have to contemplate on an ongoing basis what life is like for people different from themselves. Administrators should encourage program staff members to adopt an inquisitive and open-minded attitude toward other cultures. Why Cultural Competence MattersThe Nation's diversity has important implications for treatment programs. The percentage of minority clients in substance abuse treatment is much greater than the percentage of minority treatment counselors (Mulvey et al. 2003). Administrators need to consider whether their organizations provide competent, sensitive treatment for individuals from minority groups. Following are compelling reasons for undertaking this effort:
Learning About Cultural Competence in OrganizationsAdministration's Attitude Toward Cultural CompetenceCultural competence starts with the program's administration. The more flexible and adaptable the program's organizational structure is, the more it will be able to incorporate the kind of changes cultural competence calls for. Rigidly hierarchical organizations are resistant to change and are hampered particularly when minority viewpoints need to be included (Administration for Children and Families 1994). Cultural competence requires that people at all levels of the program learn to value diversity. The administration can demonstrate the seriousness of its commitment to cultural competence by investing human and financial resources in the effort and providing incentives for cultural competence training just as it would for other forms of continuing education. A culture of learning, where self-assessment and staff development are regular program activities, lends itself to cultural competence. Becoming culturally competent means expanding the perceptions and the worldview of all staff members. The reassessment can result in fundamental changes for both individual staff members and program policy and structure. When staff members are asked to undergo serious self-examination and change, there may be resistance and varying degrees of success. Administrators should anticipate staff objections and reassure staff members that no one is being singled out for being insensitive—everyone can strive to be more culturally competent. Defining DiversityThe consensus panel recommends that administrators define diversity broadly. Programs often assume that diversity applies only to specific ethnic and racial groups. But cultural diversity includes many groups of clients and many important factors that affect treatment—a client's gender, age, sexual preference, spiritual beliefs, socioeconomic status, physical and mental capacities, and geographic location. Program staff members should be aware of the many dimensions of diversity and how these factors can be used to motivate and assist clients in treatment—or how they can be barriers to engagement, treatment, and recovery. The glossary in exhibit 4-1 defines common terms in the context of cultural competence.
Background ResourcesAn administrator may want to explore materials and resources on cultural competence and organizational change. Information on how to support staff members in changing attitudes and behaviors is available in Thomas (1999). (See appendix 4-A for articles, books, and Web sites on educating staff and preparing programs for cultural competence.) Federal agencies and academic centers offer information to assist administrators in determining the steps to take in planning, implementing, and evaluating culturally competent service delivery systems. One resource is the National Center for Cultural Competence at Georgetown University's Child Development Center (www.georgetown.edu/research/gucdc/nccc/index.html). The Health Resources and Services Administration (2001) also offers materials. Research on treatmentLittle research exists on practical ways for programs to deliver culturally competent substance abuse treatment to specific populations. Beutler and colleagues (1997) found that matching clients with counselors of the same race improved engagement and retention for some clients but for others it had no effect. Some ethnic groups (e.g., Asians) place such a strong emphasis on community that it is often easier for them to discuss problems with a counselor who is outside their group. Further complicating the picture, clients' engagement with counselors and retention in programs also can be improved if such race-blind attributes as socioeconomic class, acculturation, and education are used to match clients with counselors (Chinman et al. 2000). Increased retention does not translate necessarily into increased client engagement in the treatment process (Chinman et al. 2000). In the mental health field, evidence that matching clients with counselors based on race improves treatment outcomes is inconclusive (Chinman et al. 2000). Administrators should not overlook the potential benefits of treating diverse clients together, where they can learn from one another across, instead of within, racial and cultural boundaries. The Center for Substance Abuse Treatment's (CSAT's) forthcoming TIP Improving Cultural Competence in Substance Abuse Treatment (CSAT forthcoming b) provides both the latest research and expert advice from practitioners on clinical issues and treatment of diverse populations. Administrators also should consult TIP 29, Substance Use Disorder Treatment for People With Physical and Cognitive Disabilities (CSAT 1998d), and Health Promotion and Substance Abuse Prevention Among American Indian and Alaska Native Communities: Issues in Cultural Competence (Center for Substance Abuse Prevention 2001). Cultural Issues in Substance Abuse Treatment (CSAT 1999a) contains population-specific discussions of treatment for Hispanics, African-Americans, Asian and Pacific Islanders, and American Indians and Alaska Natives, along with general guidelines on cultural competence. Preparing for Cultural Competence AssessmentAn administrator should consider the following issues before undertaking the various cultural competence assessments described below:
Understanding the Stages of Cultural CompetenceThe administrator and staff might find it useful to think of cultural competence occurring along a continuum that includes six stages, ranging from cultural destructiveness to cultural proficiency (see exhibit 4-2). Without attention to cultural issues, most organizations are at cultural incapacity (stage 2) or cultural blindness (stage 3). Agencies that begin to look at competence issues will be at cultural precompetence (stage 4). Even when a program reaches cultural proficiency (stage 6), there is still room for growth and improvement.
Performing Cultural Competence AssessmentAgency self-assessment is valuable in planning for culturally competent service delivery. To capture all useful information relating to a program's cultural competence, the self-assessment must survey the community, the clients, and the program itself. This assessment has two key goals: to determine how culturally competent the program's services are and to provide information for a long-term improvement plan. Assessment focuses on the following questions:
Community AssessmentAn administrator needs to identify the culturally, linguistically, racially, and ethnically diverse groups in the program's locale. Appendix 4-B provides a matrix that can be used to determine the demographics of a local area, using 2000 census data. These data can be accessed at www.census.gov. The information is useful for assessing
The census data also allow a program administrator to compare community demographics with those of the program staff. Does the staff reflect the makeup of the community? Does the board of directors include individuals who represent local population groups? Does the program have caseworkers, outreach workers, or other personnel who have links to all groups in the community? Cultural competence has different emphases depending on the makeup of the local community. Each program establishes what cultural competence means with respect to the clients it serves. People from the community and members of the board and the staff who represent diverse groups can provide useful information about the program's level of cultural competence and needed services. Assessment by ClientsImportant information about a program's level of cultural competence can be supplied only by the clients it serves. How satisfied are clients with the services they receive? Surveys help determine the accessibility and sensitivity of the program and are an effective method of program assessment. It is recommended that a program survey clients at the time of discharge (or dropout) from the program. Programs then can analyze by gender, race, ethnicity, religion, and physical ability the feedback received from clients about services. Program Self-AssessmentSelf-assessment of the treatment program's cultural competence should include the following areas:
To be effective, cultural competence self-assessment should be undertaken in a supportive environment; involve the entire program, including board members and volunteers; include a formal review in which all who were involved in the assessment learn the results; and culminate with the decision to take specific actions (Gonzalez Castro and Garfinkle 2003; McPhatter and Ganaway 2003). The results of an agency self-assessment should be used to develop a long-term plan that includes measurable goals and objectives and may indicate changes to be made in the mission statement, policies, administration, staffing patterns, service delivery practices and approaches, and outreach and professional development activities. Several assessment tools are listed in appendix 4-A. Implementing Changes Based on Cultural Competence AssessmentMost programs can benefit from administrative-level changes that can be accomplished quickly. These changes can be made in program mission, program policy, board membership, community input, staff diversity, and facility appearance. The more attention the administration pays to diversity, the more positive and supportive all staff members will be about expanding their cultural competence. Mission statement.The program should ensure that its mission statement incorporates cultural competence as a core value. The cultural competence committee should be involved in developing or modifying the statement. Program policy.The program policy should endorse explicitly and respect the cultural diversity of program clients, staff members, and the community. Respect should be reflected in the development and enhancement of the program's philosophy, outreach activities, staffing, and client services. Support for cultural competence should be included in staffing policies. Some suggestions follow:
A diverse board of directors.As a result of the agency assessment, an administrator may want to add board members from groups not represented. A diverse board is extremely important and can help provide a broader perspective. Having board members from diverse groups helps establish the program's credibility with members of those groups. Input from diverse groups.An administrator can identify knowledgeable persons from the community and involve them in the program. Their advice can help develop new interventions and services that affirm and reflect the values of the various cultures in the community. Diverse staff and management.The administrator needs to make clear, through policy and action, the value of recruiting staff members from diverse groups. Hiring ethnic or minority staff members to work in management, policymaking, and clinical positions is important for programs that serve diverse populations. Facility appearance.The decor of a treatment facility can make an inclusive or exclusive statement. The program's walls should reflect cultural openness, with posters and pictures showing people representative of the client population. Clients feel welcome when they see pictures of people like themselves. (See appendix 4-A for Web sites that have appropriate posters.) Developing a Long-Term, Ongoing Cultural Competence ProcessTo move toward cultural competence, programs need a long-term, ongoing commitment to change, including staff selection and training. Steps To TakeBased on results of the cultural competence assessment, an administrator might take the following steps:
Appendix 4-A contains population-specific information that can help staff better understand and treat clients from diverse backgrounds. Staff Selection and TrainingThe program's openness to differences in background among clients and staff members should be communicated clearly both to potential clients and to referral sources in the surrounding community. The more diverse the staff is with respect to age, gender, physical ability, race, religion, and ethnicity, the more able the program will be to treat all types of clients. A program needs to make special efforts to hire culturally competent staff. Selecting a diverse staffPrograms need to recruit staff members whose backgrounds are similar to those of the clients being treated. Unfortunately, the substance abuse treatment field has a shortage of trained counselors from diverse backgrounds. Administrators report that bicultural and bilingual counselors are hard to recruit. A recent survey done by CSAT showed serious disproportion between the demographic backgrounds of clients and those of treatment staffs (Mulvey et al. 2003). In this survey of 3,276 randomly selected facility directors, clinical supervisors, and counselors, only 6 percent of treatment providers were Hispanic and only 11 percent were African-American. Yet the survey showed that Hispanics made up 14 percent and African-Americans 25 percent of the treatment population. The study concludes that “treatment professionals are generally not from the same ethnic and racial backgrounds as the clients they serve. This situation presents a tremendous challenge for the field” (Mulvey et al. 2003, p. 56). The following planning approach may be helpful in increasing the number of counselors from different backgrounds:
Interviewing and hiring culturally competent staffCultural competence is not merely a set of skills; it is also a desire to use those skills to understand others. Programs will move more easily toward cultural competence if they hire individuals who have a genuine interest in cultural diversity. The process of hiring culturally competent staff need not differ much from hiring good counselors. The same qualities are common to each: empathy, use of individualized treatment approaches, willingness to look beyond assumptions, and ability to establish trust. In interviews, applicants should be asked to discuss what diversity means to them. Administrators should rate more highly applicants who speak of diversity in terms that go beyond race to include religion, physical ability, sexual preference, age, and gender. Applicants also should be asked to speak in detail about their experiences working with diverse colleagues and clients. Administrators also may arrange for prospective counselors to run a group session to see how they interact with diverse clients. Training staffAll counselors have cultural blind spots. It is important for counselors to acknowledge their beliefs and assumptions, even if they are misguided or based on stereotypes. Learning about the nuances of other cultures, particularly as they affect treatment, is not intuitive. Counselors should be willing to learn from their clients. Counselors should be trained to ask questions to learn what substance abuse and addiction mean in the client's culture. Staff members should not make assumptions about clients based on their physical ability, gender, ethnicity, or religion but approach and treat each client as an individual. Training can be undertaken by the program itself, can focus on the particular groups being treated in the program, and can be done inexpensively. Knowledgeable people representing the diverse groups in the community can be invited to meet with staff and discuss issues affecting treatment. Training of staff members needs to focus on
Appendix 4-A lists tools for cultural competence training and evaluation, including Web links to trainers and consultants. Undertaking Program PlanningA core set of administrative and structural principles is important for every program providing treatment to diverse groups. Treatment planning and goal setting should be sensitive to the individual client's recovery goals. The client's values and cultural traditions should be accepted and respected in establishing expectations and making the treatment plan. Program staff members should be sensitive to cultural, ethnic, and regional variations in family structures and in the way that clients define their families. Criteria for Types of ProgrammingWhat type of programming will be provided for clients from minority groups in the community? A program can decide to serve diverse clients
Programs should consider whether they can address diverse clients' needs within a nonspecialized treatment program or whether it would be preferable to set up a specialized program serving only these clients. If people are ill at ease outside their own culture, they generally are more comfortable and trusting with others who are like them. Specialized treatment programs consisting of clients from a particular group, such as immigrants from a particular country or women, offer the chance to design program strategies for individuals who share a common background and common concerns. However, because treatment resources are limited, administrators may face difficult choices about integrating diverse clients into general programs. Some questions to answer include
When the answers to these questions do not support the development of a separate specialized program, administrators may want to consider enhancing their program's general outpatient treatment services with special groups and tracks. Administrative Support for CounselorsWhen clients from diverse groups are to be treated in a general program, the counselor who works with them should be experienced and supportive. Such clients may need additional time in individual counseling, as well as the counselor's help to integrate them into the treatment group. Clients from diverse groups may need ongoing, long-term social support. The available peer support groups in the community may not serve some of these clients adequately. Programs should identify and maintain a list of local mutual-help groups. If appropriate support groups cannot be identified for a particular group (e.g., Hispanic clients who abuse alcohol), the treatment program should consider sponsoring a specialized alumni support group. Bonding with a long-term support group can be a significant factor in recovery. Specialized Treatment ProgramsIf a specialized program is deemed necessary, administrators should be aware that the program must follow mandatory State requirements and meet the same licensure regulations as other treatment programs. These requirements need not hamper treatment of minority clients. Directors of ethnocentric treatment programs note that, although State and accreditation requirements are the same for all programs, culturally sensitive treatment can deploy the required program elements to serve culturally diverse clients. Identified special client populationsClients for whom specialized programs are highly recommended include
Components of specialized programsSpecialized programs for a particular group should include
Clients With DisabilitiesClients who are deafOne-half of one percent of the American population is deaf, but people who are deaf are underrepresented among the population that seeks treatment (McCrone 1994). It is important for administrators to be aware of potential barriers to treatment, some of which come from within the close-knit Deaf community. Because people who are deaf socialize primarily with one another, a fear exists that personal information shared in treatment will become public via the Deaf community's communication grapevine. The Deaf community's desire to present a positive image also may deter some members from admitting to substance use problems (Guthmann and Blozis 2001). Individuals who are deaf are reluctant to enter treatment if they think they will encounter barriers to communication. For this reason, most people who are deaf and seeking treatment for a substance use disorder prefer to be in a program with other people who are deaf (CSAT 1998d). Because having a separate group often is not feasible, most programs treat individuals who are deaf with hearing clients. Deafness is defined as a disability by the Americans with Disabilities Act (ADA) of 1990; clinics are required to provide accommodations to individuals who are deaf and seek treatment. In most cases, the accommodation will consist of hiring an individual fluent in American Sign Language (ASL) to interpret during sessions. Family members of the individual who is deaf should not be used as interpreters. Administrators should not assume that all individuals who are deaf are proficient in ASL; some use other manual languages. Written materials might be difficult to understand for some individuals who are deaf; the average adult who is deaf reads at the fourth grade level (Crone et al. 2003). Recovery can be particularly difficult for individuals who are deaf. Because there may be few people who are deaf in the area, people who are deaf and in recovery who want to sever ties with substance-using friends may have to turn their backs on nearly everyone they know. Also, support groups that include ASL interpreters are rare (Guthmann and Blozis 2001). Programs should maintain a list of resources that can be accessed by individuals who are deaf and in recovery (Guthmann and Sandberg 1998). The Minnesota Chemical Dependency Program for Deaf and Hard of Hearing Individuals offers resources and training for treating this population. Its Web site (www.mncddeaf.org) includes articles on assessment and treatment, as well as information for ordering manuals for individuals in recovery and videotapes of mutual-help programs interpreted in ASL. Other clients with disabilitiesIndividuals who are disabled have higher rates of substance use disorders than the general population (Moore and Li 1998). The higher rates can be attributed to increased risk factors, such as chronic pain, a feeling of entitlement to drugs, and access to prescription drugs. Administrators should know that the presence of a physical or mental disability may conceal signs of substance use (Li and Ford 1998). ADA guarantees equal access to treatment for clients with disabilities. If the building that houses the program does not permit equal access to people with disabilities, administrators should consider making the necessary changes. Physical barriers include not just stairs, but narrow hallways, conventional doorknobs that prevent access to people with limited manual dexterity, deep pile carpet that interferes with wheelchairs or crutches, and water fountains and telephones that are located too high on walls (CSAT 1998d). People who use wheelchairs or crutches may need help arranging transportation to and from the treatment facility. While there, they may require extra time to get from place to place. Administrators should be aware of local programs and services that are equipped to help individuals with disabilities. TIP 29, Substance Use Disorder Treatment for People With Physical and Cognitive Disabilities (CSAT 1998d), contains information about screening and treating this population; chapter 5 of TIP 29 focuses on administrative tasks, appendix B lists resources, and appendix D discusses the implications of ADA. Designing Ongoing Outreach EffortsCommunity involvement and outreach are critical parts of any long-term, cultural competence plan. Providers need to think about how they can recruit clients from cultures not adequately reached by the program. Programs should reach out to minority individuals who are in need of treatment but may be reluctant to seek it. Programs will benefit greatly from drawing on the cultural experience and expertise of diverse members of the community. Administrators should involve the diverse groups in developing program goals, designing networking, and ensuring client entry and retention. The following steps can be taken:
Although there is widespread agreement that understanding of and sensitivity to the increasingly diverse cultural groups in the United States are positive developments, it is unclear how these developments should affect treatment. McFadden (1996) observes that “simply knowing about a culture is not sufficient. The counselor must use this new information obtained through experience and incorporate it into the counseling process” (p. 234). Studies conducted to date on the implementation of culturally specific elements in substance abuse treatment have been inconclusive. The consensus panel believes that cultural competence is a worthwhile goal for programs and recommends that it involve the entire program—from the board of directors to the part-time staff members, from the mission statement to outreach efforts. When administrators commit program resources to train and support staff members in their efforts to improve their cultural competence, the program as a whole benefits. Appendix 4-A. Cultural Competence ResourcesBackground Information on Diversity and Cultural Competence
Preparing for Cultural Competence Assessment
Assessment
Training
PostersSAMHSA's NCADI stocks posters and office materials that can be viewed and ordered at www.ncadi.samhsa.gov. Population-Specific InformationFor information and resources that address specific populations, see TIP 47, Substance Abuse: Clinical Issues in Intensive Outpatient Treatment (CSAT 2006b). Appendix 4-B. Community Diversity FormTotal City Population: ________________ Total County Population: ________________
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