I'm very torn about the phones to the shelters. I approve of the concept 100%... but in practice, it has problems.
Old phones have no contract, so they have no number associated with them. Therefore, no way to call them back or determine who has it. Cell locating technology for 911 is nowhere near perfect - most companies only guarantee 50yd accuracy or so with the latest phones. As I'm sure you can imagine that could cover an entire apartment building... and with an older phone, the technology isn't anywhere near as good. Some companies still have the old tech on their towers, too, which narrow it down to about 5 square miles. :-\
I have had more than one call from a 911-only cell phone that was clearly a nasty domestic - but no location, no callback number, and no way to send help. It's a sickening feeling.