I am both a volunteer and a leader of an animal welfare organization of volunteers. So this discussion is very much of interest to me. A lot of good suggestions have been made, and a lot of very true observations have been spoken (er, written).
I don't have the actual statistics at hand, but the Independent Sector reports that growth of the nonprofit sector has outpaced BOTH government and for-profit sectors in employment. Now, that's ONLY the organizations with paid staff positions. Remember that there are also a huge number of small organizations that organize (start up) within any given year, not all of them will succeed, and few of them are set up by a large, diverse board of directors with professional business experience. Some may be.
I think it is also worth considering, that we don't have certification programs for pet owners or people interested in helping animals. Yes, there is NACA for Animal Control Officers, and there ARE training curricula that individual organizations offer. Still, there is no requirement for someone to demonstrate any particular knowledge or skills in order to obtain a pet (in legal terms).
Put all of that together, and you have a bunch of amateurs running around in circles -- at least sometimes. In the example that Shorty's been providing us, you've got someone in Customer Relations that doesn't see Shorty as a customer probably. You have Shorty's brother as an individual with every good intention in the world, maybe wishing for the best, but not having any real facts to base the wishing on. You've got the poor dog, just doing what comes naturally, with a very confusing series of life-experiences.
In some sense, we all impose our EXPECTATIONS on one another. I think it would be great if everyone in my neighborhood who would like to help animals, would meet together at the beginning of the year and give even a "guesstimate" of what they might do, how much they think it might cost, etc. It would be cool if the shelter or rescue that was full when Shorty called, could forecast when it was nearing capacity, and ramp up foster appeals and training program, warn the community about its situation, to push the closing down to new admissions off. But because I have yet to see such collaborations happen, I think we all tend to set one another up for failure.
I wonder sometimes how much it "should" cost to have really excellent animal care and control in any community, that included terrific people answering the phones and so on ....