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HomeMy WebLinkAboutMINUTES - 01011971 - Grand Jury 1971 OFFICE OF THE COQ ADMINISTRATOR CONTRA COSTA COUNTY Administration Building Martinet., California To: Board of Supervisors Date: larch 5, 1972 From: J. P. McBrie-d ""�° Subject: Report of 1971 Contra County AdminisVdrf Costa County Grand Jury The 1971 Contra Costa County Grand Jury Report is a 164 page document which was released in January, 1972 a copy of the report was received by my office on Jamaary 12, 197 . The scope of the report is indicated by the Table of Contents, a copy of which is attached hereto. Each county agency to which the Grand Jury gave attention bas been contacted by my office by memora nd»n and requested to comment on the pertinent part(s) of the report; a sample copy of one of say aorada (tote Office of the County Sheriff) is transmitted herewith. I will forward to the Board of Supervisors the commental .of each of the county agencies after its review of the report al cog with * owm comments for consideration by the Board of SuperVliors (after referrals to Board Committees, if necessary). preliminary sumary comments on the 1971 Grand wry reppvt acre set forth in the following numbered paragraphs:a 1 a Introduction''- to Committee Reports. The 1971 ra:nd jury comp a3 s prior rend Jury rec tions have been ignored. There is no deliberate intention to disregard Grand Jury proposals; in fact, Grand Jury secom-� tions .ca£ten reflect proposals of county officials that. they would like to implement. The deterrent to taking Grand Jury recommendations effective: Is often a matter of fins acing for which solasti:ou� are rarely suggested. It may bre noted, howl er, that the Taxes and Assess- ments Commit t" of the :1971 Granid Jury diel. present a fdre fial statement on the onerous property tax situation. Copies of the 1971 Grand Jury report have been transmitted to the Contra Costa County representatives in the California State Legislature. Hoard of Supervisors 2e March 6, 1972 2. Audit and Finance Committee�Re�ort. The re's 'tie �F�ance' Committee relates primarily to accounting procedures onn which comments will be made by the County Auditor-Controller. It should be noted that a new system related to cash receipts of the Office of the County Tax Collector is being designed and that it is expected that the system will be operational for December, 1972 tax collections; the 1971 and some prior Grand Juries have commented on this matter . from the viewpoint of maximising interest earnings. 3. Civil Service Committee. The report of the v I SeMce UiEnree deals with the work of the Civil Service Task Force (and in particular with the recommendations of the Task Force on management prerogatives as set forth in the County Employer-Employee Relations Ordinance, and on the composition of the Civil Service Commission) and. the position of County Hearing Officer. The Committee urges that the recommendations of the Task Force on changes in the Countyy Employer®Employee Relations Ordinance be disapproved, that the recommendations of the Task Force on the composition of the Civil Service Commission be disapproved, and indicates that there is no need for a County Hearing Officer. It may be noted that the 1972 Government Operations Committee is now reviewing the County Fkiployer-Employee Relations Ordinance at the behest of county employee groups, that the county civil service ordinance (adopted in 1944) has not been substantially changed to fit changing times and circumstances, and that the County Hearing Officer is also available, at the discretion of the Board of Supervisors, to hear matters other than referrals from the Civil Service Commission. ' Board of Supervisors 3. March 6, 1972 4. Hos ital Clinics and Social Welfare. The report or Ene TiospM1, CIME9 an Social Welfare Committee points to the substantial expenditures being made for social programs (welfare and hospital programs), indicates that public assismedical care are provided underlex arrangements which precluded a comer nsive coinittee evaluation, and states that the committee did not receive factual answers to many of its inquiries from the -county a$encies involved. Th committee also points out that welfare programs are subject to public criticism and some of the criticism was justified, that welfare administrative costs appear to be high, that fiscal controls of welfare costs: . were improved as indicated b the fact .that 1970-1971 expenditures were by well within budget allocations, that the public should be aware that the county social service organization was deeply concerned about any fritudulent claims for public assistance, and that some workers in some of the offices of the Social Service Department gave the impression that a. full days work for a full days pay was not being given. In cormection with hospitals and clinics the c mmittee advises that it was convinced that efficient use of hospital facilities (public and private) would result in a general improvement in service without increased expenditures. The committee offers critical comments about hospital operations in the Concord Hospital District, the Pittsburg Hospital District, and the West Contra Costa Hospital District over which the Board of Supervisors has no jurisdiction; in this connection the committee criticizes the proposed joint powers non-profit corporation agreement between the Concord Hospital District and the County of Contra Costa for expansion of district hospital facilities, and states that the expansion should be financed with revenues from the sale of bonds which means of financing the committee asserts would be supported by district residents if expansion were demonstrated to be necessary. Board of Supervisors 4. March 59 1972 �nTitll resgact to the Count . Hospital the coasanittee points to its c ixg role iia. terms of services for amental p ill and the mentally retarded and drug addicts,, states that the physical facilities of the hosppital are poor with particular reference to the laboratory, asserts that there appears to be little cooperation between the County Hospital and district hospitals and private hospitals, and mentions controversial budget ov®�c-rua9s sof the County Hospital. In its awry and general recommendations the committee reasserts that there is a lade of cooperation between district hospitals and the County Hospital and private hospitalag states that the Comprehensive Health Planning Association of Contra Costas County should assume a stronger role in the coordination of health facilities within the county, recommends that the County Hospital and County Health Department and Office of the County Coroner should be merged, states that new lags must be introduced to prevent district hospital professionals from using tax supported facilities for profit., And urges that the 1972 Grand Jlaary continue to investigate health services within the county. The report of the Hospital, Clinics and Social Welfare Committee has been referred to the County Welfare Director for detailed review and his report will be submitted to the Board of Supervisors as soon as it is avail- able. As noted by the committee the overall social programm area (public assistance and medical care) is involved and complicated; In-depth revaews require an extended length of time and concerted efforts. It may be voted that organizational consolidations were effected in the social program area prior to issuance of the report of the 1971 Grand .Jury. Board of Supervisors 5. March 6, 197 2 5. Judicial Committee. In its report the Judicial ee refers to its recommendab tionopp inlegislative authorization of are add oo�a l Superior Court .fudgge, reviews and sus suggestions is connection with its discussions with the presiding judge of the Superior Court,, recommends that rues on civil trial juries adopted by the California Judicial. Council be extended to criminal cases, urges that the judge .assigned to the juvenile court continue to serve in that role for several years to obtain maxima benefit' from his' experience in that capacity® Mates that it is desirable that the Superior Court concern itself more directly with the operatiou of the Probation Department, recom- mends farther lir court consolidations and the establishment of a single countywide im mmicipal art with one top Municipal Count Marshal assisted by Deputy Marshals, criticises severely the current accommodations for the Walnut Creek Municipal Court and urges prompt action on replacement facilities, recommends the use of a special referee or commissioner in lieu of a municipal court judge in hearing small claim and traffic matters, urges leislative action so as to permit the rex t oan of jurors from 12 to 6 in misdemeanor cases, recommends the number of jurors required red to acquit or cauvi..ct in . felony cases changed frau a us vote to a vote of 10 to 2, and concludes its report by assorting that there is a need for revamping and modernizing of the entire court systema. It may be noted that the Legislatureand the. Governor did, in fact, approve another judg * ship for thei superior Court, that the board of Supervisors has proceeded in the direction of eetablishi:ng the mini.mum number of lower courts in the county (the original number of 17 lower courts has noir been reduced to five), that there U still aroblem with respectto financing of now facilities for the Walnut Crack Municipal Court, and that the committee suggestions with respect to Superior Court pr®cedures might be more appropriately made by the Superior Court ,fudges t1um by the Board of Supervisors. * Board of Supervisors 6, March 60 1972 6. Law Enforcement Committee. The Law Enforce- im CommlEtee s its comments and recommendations in two parts, one being its main report covering city and county police service, junior college police apprentice programs., County Disaster Office operations, and county ambulance service and the second being a suplementary document on county jail operations (jail and rehabilitation center). In reviewing police service the committee considered police officer training, prisoner . Pick-up by the office of the County Sheriff, the use of portable tape recorders in patrol cars, the matter of control of flea markets, the use of helicopter service, the potential of the use of city jails for incarcerating - drunk drivers, and this desirability of public officials riding with beat patrolmen to become directly familiar with police services. In terms of county law enforcement the committee comments on the meed for new jail . facilities as well as the objective of reducing jail population through rehabilita-. tion programs, criticises the rehabilitation center operation because some work at the facility is performed .by paid workers which . it believes can be done by inmates, considers additional security to be needed at the County Hospital when prisoners are receiving medical care, recommendsa classificatiaa of Jailer be established rather then use Deputy 'Sheriffs in that role, urges better procedures for obtaining approval of search warrants from judges, recommends more rigid control of private lice protection agencies Including the re =nt that personnel of such agencies have uniforms of a different type than police officers, proposes countywide registrationof bicycles to deter thefts, suggests that the Probation Department obtain all available data from police reports for the files of felons, recommends that the Board of Supervisors 7. March 6, 1972 Office of the County Sheriff assign three patrol sergeant supervisors to each shift, comments on the impression that some judges are too lenient in setting bail and imposing penalties,. proposes that additional police services be provided in the unincorporated El Pueblo and West Pittsburg and North Richmond areas, and recommends more intensive police training in the use of firearms. The committee comments on the police services of elevens of the fourteen cities in the county (Cities of Clayton, Hercules andIafayette are excluded) and of the Kensington Comttriaaity Services District and makes specific recom- mendations in most cases. In the case of the Contra Costa Junior College 'District, the committee recommends improvements in the police apprentice program at Diablo Valley College and the introduction of such a program at the Contra Costa College. In the case of the County Disaster Office, the committee recommends that the office remain as a separate agency (as atresent rather than. be combined with the Public Works Department as has been proposed), compliments the office on the service which it renders to the public, points to the space needs of the agency, particularly when county personnel must be mobilized at a central point during disaster situations, indicates the agency has additional equipment and supply storage needs, recomm- that the county communicatIM system be split with the Office of the County Sheriff to retain control over the law enforcement symptom and so that the Disaster Office will be responsible for operation of the remainder of the system (such as for public works, animal control, fire, and ambulance functions) on an around the clock basis, and proposes that the county communications engineer be transferred to the jurisdiction of the Disaster Office. z i es. of ¢ _,;visors II® Marcia 6, 1972 The committee recommends strongly that a publicly owned ambulance service be developed to provide countywide emergency service, suggests that the U. S. Department .of Trans- portation be contacted with respect to federal grants for equipment for the proposed ambulance service, anad proposes that the hospitals in 'the county develop an improved system for transporting outpatients and avoid tying UP ambulances required for emergency purposes.. In its supplementary report the committee criticizes security provisions at the rehabilitation center inclusive of supervision of -prisoner work crew, expresses concern: over security arrangements in the county jail in Martinez, points to a eased to segregate prisoners contingentupon the seriousness of their offenses, and urges that the Office of the County Teriff utilize the services of the hest a :Iahle persormel for duty as ,jailers° The County Sheriff. has already submitted to aV office a report containingdo aexats on the recannendatiods, and proposals of the Law Enforcement Committee of the 1971 Contra Costa County Grand .Bury and this report will be transmitted to. you shortly along with MY own comments. It may be .noted that some of the suggestions of the Lair Fnforeement Committee have been implemented anddetailed attention is beim-given to others. 7.. PLIgRIES and Public Works Committee. The reporc or Une L, Ing PORE As Committee deals with some of the functions of the Public Works Department with particular emphasis upon. airport operations, the work of the Pl Depa t rimarily .in tem of public relations and qua if ications of personnel, and the responsibilities of the Contra Costa County Flood Control and Water Conservation District with consideration given to desirable changes in legislation.. Board of Supervisors 9. _Larch 60 1972 In the case' of the Public Works- Department'' the committee points to the need for expediting the TOPICS (Traffic Operations Program to Improve Capacity and Safety) progra which bas been subject to delays as a result of compli- cated pli®casted regulations pertaining thereto, points to the inadequacy of the present central Public Works corporation yard for which a replacement. site has been purchased, commends the emphasis upon ecological and- aesthetic facets of Public Works programs inclusive of planning for roadside pathways for use a bicycle paths and horse trails, and suggests the. need for improvement in the handling of receipt booksand cash receipts the committee, after reviewing county airport operations, '.recommended that the airport master plan be updated and .advises that nothing has been dome since 1950, that the , airport be c erated on a 24 hourbasis, that depreciation' on airport property donated by the federal government be excluded from air- port financial reports, that bids be solicited for airport fuel and services (with hours of operation specified) and a contract beim awarded to a single f irm, zaid. that .the a:Lr- port be placed under themanagement; of a special airport commission. With regard to the last recommendation, the comnittee in its review points to poor airport organizational arrangements and differences of opi nion between personalities and also suggests the need for might security at the airport. With respect to the Planning Department the . committee asserts that this agency has a poor image in terms of public relations,_ that a system for evaluating employees on a regular basis should be introduced and that stronger and more capable management is required. In the case of the Contra Costa County Flood. Control and Water Conservation District the committee is complimentary about the work accomplished by the district and about its success in obtaining federal grants, indicates that consolidation of the district with the Board of Supervisors 10. March 6, 1972. Public Works Department would be advantageous but that the merger should be preceded by the consolidation of the flood control district- with istrictwith the Contra Costa County Storm Drainage District and by a number of changes in legis- lation for apppplication to the combined flood control and drainage agency. The Public Works Director has already submitted comments to me on the part of the' Playing and Public Works Committee report which pertains to his a,geaacy and I expect :to receive similar comments shortly from the Planning Department, the Contra Costa County . Flood Control and Water Conservation District and the County Disaster Office. The comments mentioned will be 'trensmitted to you along with my review of the committee report. It is worthy of note that the airport master plan mentioned by the committee waa updated .and: adopted ixn November, 1970 after a series of peablic, hearings--and the legislation mentioned by the committee in connection with its review of the work of the Contra Costa County Flood Control and Water Conservation District has. been submitted for introduction in the 1972' session of the California State Legislature. 8. Probation Committee. In its report, the " MOME10 asserts that the .objective of a probation system is rehabilitation. and that its report is presented from that point of view. The committee points out that the probation system involves many agencies and requires their concern and cooperation to be affective. The committee gave attention to probation. facilities including group tomes, the Byron Boys Ranch, the Juvenile Hall, and the Girls Treatment Center (located at Juvenile Hall). In the case of the Las Trampas Youth Village (four gr hoaxes), the committee suggests the homes be closed due to their remote location and high cost of operation and that in the meantime the boys placed there be given grounds maintenance and garden duty, Board of Supervisors 11. March 6, 1972 assignments; in the case of the Walnut Creek group home, the committee also #uggests grounds maintenance duty assists for the boys and conte on parking a county car at the home. In a general sense the committee questions whether the objective of providing a homelike atmosphere through the use of .group homes is be-Lug achieved. In the case of the Byron Boys Manch, the committee c mwnts on its remote eastern county location, states that it should be kept operating at full cacity to relieve overcrowding at Juvenile Hall, and indicates that a comparable facility is needed in the western area: of the county. In the case of the Juvenile Hall the committee is extremely critical of overcrowd- ii�ng and the practice of placing more than one W1d in a room intended for one, and asserts that the heaving and ventilation in the building are poor. The committee is compli- mentary about the facilities provided for the Girls Treatment Center (located.-within the Juvenile Hall) but is very criticalof the use of such facilities to relieve overcrowding in the Juvenile Ball section for the detention of delinquent girls. The committee points out a need to segregate children who are committed for the first time from children who have already been adjudged delinquent,. and emphasizes the need to reduce the length of detention periods. In reporting generally on the Probation Departmmnt, the committee states that the 'seems to to be well organized and las capable staff. The committee asserts that the hours of .probation officers should be made flexible, that the department is not adeeq�uuaately staffed to fulfill its purposes, that probation . investigations and supervision require inten ,sive and time consizaing work, that the 1971.41972 personnel requests of the Probation Department were cutback substantially by the County Administrator and the Board of Supervisors, and that in the opinion of the committee all rsonnel requested by the Probation Departaaaent is urgentlyy needed. The committee also points out that the County Probation Officer is Board of Supervisors U. March 69 1972 responsible to the Superior Court for the attainment of results, but that the appropria- tions ropria->tions for his department are made by the Board of Supervisors and that consequently the efforts of the department and the court may be nullified unless the Board of Supervisors acts wisely .on budget requests;_ in this connection the committee states that parsimony where the probation activity is concerned is :clearly false economy. The committee made contacts with various groups and persons having a direct interest in the probation activities; these included the Juvenile Justice Commission and Delinquency Prevention Commission, the Foster Parents Association,. the Contra Costa County Employees Association (Local 1), and a representative group of deputy probation officers. The committee found itself in agreement with the work ,and aims of the Juvenile Justice Commission and Delinquency Prevention Commission; finds the foster home arrangement to be a very desirable rehabilitation program, states that the services of foster homes are not ming used to the full extent possible and urges more intensive use and also the licensing of additional foster homes, ImUcates that the payments made to foster homes for child care are relatively low and suggests that a study be made to remedy this situation, and mentions that responsibility for the care of dependent children was tresferred from the Probation Department to the Social Service Department and states that because of the divided respon- sibility for the care of children, close departmental cooperation is required; compli- ments the representatives of the Contra Costa County Employees Association (Local 1) for their viewpoints an probation and their contribution to the Grand Jury, in the form of . a 40 page report; and expresses concurrence with the viewpoints of representatives probation officers who it states wish to make desirable changes in the probation system. Board of Supervisors 13. March 6, 1972 In its conclusions the committee indicates that the Probation Department and related agencies: are successful to as degree, but that in the opinion of the committee it is a small degree in terms of what needs to be, done; alae t the county is spending aaa" large amcnmt of may for the Probation Department and that the committee recommendations would increase that amount slightly; that it is. concerned that the county intends to make greater outlays of capital funds aand operaatlug expenses and that too much emphasis s is placed on detention In Contra Costa County while other counties in California and across the nation are utilising more modern and productive techniques and programs. The committee criticizes the nonprofit corporation arrangement utilized by the county tole Ball facilities after re ection by the voters of bond issues for that purpose, finds it to be as disappointment that the Probation Department is in agreement with .such exp--ioan, states that the existing Juvenile Hall is sufficiently Large to house children who maaat be detained, that many alternate ideas have been presZsA to diminish detention requirements, concludes that county officials are out of touch with recent progress in the probatLon field, andsuggeaasto that unless there is ant a of direction the present county officia should be replaced by wan with deeper perception and more flexibility and greater foresight. The Probation Committee report has been reviewed by the County Probation Department and the departmental comments will be trans- mitted along with my comments to the Board of Superviasoro at an early date. It may be ST that the report of they comittee:a conflicts directly with the report of the 1970 Contra Costa County Grand Jury in several respects. It may be noted also that the Probation Committees dial not indicate the means of financing acing the various proposals which it made; the additional personnel which the committee recommends, for example, would Involve an additional annual county expenditure Board of Supervisors 14. March 60 1972 from property tax revenues of over $400,000. It may be noted further that the budget of the Probation Department was increased between the fiscal year 1965-1966 and 1970-1971 from approxi- mately $39200,000 to roughly $7,1009000, 9. Special Districts Committees. Three reports Were de—WILoped by the Spec al Districts Committee. The first report deals with the subject of its survey of fair emplo Ut. practices in Conttra. Costa County; the second, report sets forth recommendatiobui on increas- ing the salary of Supervisors and on their official status; and the third report contains re ations on the provisions of funds so that Grand Juries may employ consultants With particular reference to review of specialized county functions and to review of special district activities. With respect to fair employment practices, the committee states that its survey shows that, in a review of 88 organizations and over 25,000 jobs, the overall statistics showy 5.9 per cent black employment as compared to a 7.4 per cent potulati.on ratio and show a blank hiring record of Dalyy 3.85 r cent by Intra- county districts excluding those in the cities of Richmond and Pittsburg; points to the good example of the Bay Area Rapid Transit District in developing a positive program for minority hiring; and recommends that the Board of Super- visors take the lead in encouraging affirmative minority hiring practice statements, that the Board of Supervisors require a yearly minority employment report of all departments and agencies Within its control (with the report tailored after Federal Employer Informations Report EEO-1)9 and that the Board. of Super- visors and the Grand Jury encourage all independent and inter-county districts to take part in the affirmative action( program recommended by the committee. Board. of Supervisors 15. March 6, 1972 The committee recommenda, with respect to the Board of Supervisors, that the salary of each Supervisor be fined at $19,200 (present salary is $14,500); that no Supervisor be permitted to earn outside income other than from personal investments held prior to being elected a Supervisor; that each Supervisor be provided with an administrative assistant to serve at his g�leasure (at an anticipated salary range of $1,000 monthly); and that such assistants be employed so as to Rerform independent research inasmuch as present Administrator system can only be a conciliator and aibitrator.n In terms of the hiring of consultants, the committee recommends that the sum of $25,000 be appropriated for the use of the 1972 Grand Jury to pay for such services so that particular county functions, such as electronic data processing, and the work of special districts, such as the Bay Area Rapid Transit District, may be investigated with the aid of persons with special knowledge. There its of the Special Districts Committee are being reviewed from an administrative standpoint although some of the content of the reports reqquire attention in teems of policy determinations by the mrd of Supervisors. It ma yy be noted that special county efforts have ?been made to provide an opportunity for the employment of minority persomnel and such efforts are being continued. It may be noted also that the employment of emsultants must be evaluated in terms of desired objectives and costs in each case and that consultants have frequently been engaged by the county to review, make recommendations on.. and implement improvements in the conduct of particular functions; the county data processing operation, for example. was the subject of detailed study by cons tants in 1969. Board of Supervisors 16. March 6, 1972 10. Taxes and Assessment Committee. The report of EM 73—Res sessmen ttee is a forceful and well documented presentation of the facts related to the present extremely onerous property tax climate. The committee points out that Lander current circumstances an undue burden is placed upon the small businessmen and upon the homeowner (particularly the retired; aged, and poor), that no ,action has been takers at the stags level to relive the situation, that preferential treatment has been given to certain categories of taxpayers,: that the declining assessment ratio being applied to utility progerties by the State Board of Equalization has a very adverse effect upon the taxpaying status of other date ries -,of property owners, and that state legislative action is needed to diminish the oppressive property tax requirntis. The committee after a review of the recom- mendations of the 1970 Grand Jury on the Office of the. County Assessor indicates that progress id, iaaplementing them has been made and points out the further. steps .which it duns desirable® The committee recommends that the property assessment lien date be fixed as of January 1 (rather than Marcia. 1)8, that an average inventory value be used for property taxing purposes, that action be taken through legislative msasures and by informing the general public to avoid and el '-- . preferential tax treatment, that the method of establishing the market value of utilities be made more uniform with the formula used by County Assessors, and that further lowering of the ratio used In assessing utility properties be discontinued until such uniformity is achieved. The County Assessor and I are in general agree- ment with the contents and recommendations of the report of the Taxes and Assessment Committee; the detailed comments of the County Assessor will be submitted shortly along with my own. Board of Supervisors 17. lurch 6, 1972 11. General Comments and Recommendations. The Grand uty Knerw2eis ru IEF-freport a one paage statement of general comments and reions. In the statement the Grand Jury criticizes the establishment and use of nonprofit corporations as a device to circumvent voter approval of bond issues, cites the addition (now in progress) to the Juvenile Ball and the construction of the County ,Administration Building as examples of the nsoxsprofit corporations arrangement, and recom- Mends that the 1972 Grand Jury eng a aares inadepenndenst firm of c uusltannts to vestigate the efficiency of all departments of the county government (in addition to the employ- ment of consultants to inveAtigate special districts as recommended by the Special Districts Committee of the 1971 Grand Jury). It may be noted that the Board of S rviaor6— under the provisions of Section 25351 of the California Government Code and of court decisions related thereto has the duty to prov=!O ilities for county government f�scit may also be noted that in the cause of the addition to the Juvenile H€nll, 60 per sent of the voters approved bond issue financing in the first balloting (in 1967) on this proposal and .that 65 r cent of the voters appproved bond issue finnan, in the second balloting (in 1968) an this proposal; in both elections approval of gond issue financing failed to receive the requir ed two-thirds vote although as substa ntfal majority vote in favor was amt in both elections. The non- profit corporation aararaa-ement which was used in order to alleviate the serious overcrowding at the Juvenile Hill provided relatively favorable financial results taking into account the high interest rates which pre -- l.. It may be noted further that the County Administrations Building was not built under as xsoaspneofit corpor- ation arr ement but under a lease-purchase agreement with the Contra Costaa. County Retire- meat Board; in this case, the equivalent rental rate is far below that which is now nsecessaarily being paid for the straight lease of less satisfactory privately owned space. Board of Supervisors 18. March 6. 1972 Prior comments hays been made with respect to the employment of consultant, (as suggested by the Special Districts Coaiaittee)^ the over- all investigation suggested by the Grand .fury at wt be similarly considered. 12. Press Releases_. The 1971 Grand Jury a moved Issuance o ppress releases in behalf of its Hospital, Clianics, and Social Welfare Committee, its Judicial Comaittee., its Lam Enforcement Comittee, its Public Works and Planning Committee, its Probations Committee,,tte+e, its Special Districts Committee (3), and its Tax and Assessments Committees; copies of these press releases are included: in its final report. The ress releases are generally excerpts from ttee reports and do not rewire review and comments separate from attention to such reports. It is recommended that the Board of Supervisors acknowledge receipt of these preliminary summary comments on the report of the 1371 Contra Costa County Grand Jury and direct that a copy of them be placed on file in the office of the County Clerks with the under- standing that detailed comments from county agencies and my office will be mijbmitted later for review and action by the Board of Supervisors. . Aaa encls. TABLE OF CONTENTS PAGE AUDIT AND FINANCE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 CIVIL SERVICE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 GENERAL CMIEN:t°S AND RECOMMENDATIONS . . . . . . . . . . . . . . .. . . . . . . . . 1.36 HOSPITAL, CLINICS AND SOCIAL WELFARE. . . . . . . . . . . . . . . . . .1 — 22 INTRODUCTION TO COMMITTEE REPOR'TS. .. . . . . . . . . . . . . . . . . . . . . . . . . I � JUDICIAL. . . . . . . . . . . . . . . . . . . . pa . . . . > . . . . . . . a . . . . . e . . , Y . a . . . . 31. LAIC ENFORCEMENT. . . . . . . . . . . . . . . . . . . . . . . . . . . . • . . . , . . ... . • . . . , .. 36 PLANNING NNING ` ND PUBLIC • ORM. . . • . .. . . v b Y . ♦ D . . . a . . P p . • • • • • O . J P . • O ✓N PRESSRELEASES. . . . . . . . e . . . . . . . . . . . . . . • • t . + a . ; a • e s • . • • s m • • e s 137 e PROBATION. . . e . . • . . . . . e . . . . . . a . . . . . . * I . . . . • a • a . u u e e . . ♦ s o • . • u 66 SPECIAL DISTRICTS FAIR EVIFLOYi,1ENT PRACTICES IN CONTRA, COSTA COUNTY. . . . . . . . gS RECOMMENDATION FOR MODIFICATION OF SUPERVISORS' STATUSAND SALARY. . . . . . . . . . . . . . . . . . :. . , e . . . • . . • . . . . 96 FUNDS TO MIRE CONSULTANTS FOR THE GRAND JURY. . . . . . . . . . . . 98 TAKESAND ASSESSMENTS. , . . . . . . . . • . . .s . . O Y Y P < b • d . tl . • . ♦ t d • b m . • • 112 rebtuary 4, 1972 F. Young$ Sheriff-Coroner Attention 11. D. Ramsay J. '. McBrienp Report of 1971 Centra County Administrator Costa County Grand Jury Reference is made to the subject reportw a Gopy Of whic was furnished to you, Please ,prepare ycar orents on the parts of the reori: in tahich attention, is ,given to the law enforcement ftmetiong the parts of the report to which 1 refer are age 14, p es 36 throu,nh 43, pages 52 t through 54t and pages l4 through 1�a3� You may wish to transmit your comments directly to the Board of. Supervisors. if you wish to ktave your comments transmitted to the Board along with mine howevar, I will, . folloi .th.. t procedure. Tease take profit act.im on this matter. MfcB:bgg ' wP 4 OFFICE OF THE COUNTY ADMINISTRATOR CONTRA COSTA COUNTY Administration Building Martinez, California To: Board of Supervisors Rtes March 6, 1972 From: J. P. McBrietV Subject: Report of 1971 Contra County Adminis to Costa County Grand Jury The 1971 Contra Costa County Grand Jury Report is a 164 page document which was released in January, 1972 a copy of the report wasreceived by my office on January 12, 1972. The scope of the report is irAicated by the Table of Contents: a copy of which is attached hereto. Each county agency to which the Grand Jury gave attention has been contacted by mfr office by memorandum, and requested to comment on the pertinent part(s) of the report;. a sample copy of one of my memoranda (to the Office of the County Sheriff) is transmitted herewith. I jai ll forward to the Board of Supervisors the comment.t o each of the county agencies after its review of the report. alon with a for consideration by the Board of Supero �ox� (after referrals to Board Committees, if necessary). Icy preliminary spry comments on the 1971 Grand Jury., report are set forth in the following numbered paragraphs: .1 Introduction to 'Committee Reports. The 1971 ju iplains that TeC4= datic©8 h '74% been rIor gyred• Thereis no deliberate intention to disre gard Grand Jury proposals; in fact, Grand Jury �recom-_ awndations often reflect proposals of county officials that. they. would like to .implement. The deterrent to ming Grand Jury recommendations effective is often a matter of financing for . which' solution. are rarely suggested. It may be noted, however, that the Taxes and Assess- ments Committee of the 1971 Grand Jury did. presenta forceful statement on the onerous property tax situation. Copies of the 1971 Grand Jury report have been transmitted to the Contra Costa County representatives in the California State Legislature. Board of Supervisors 2. March 69 1972 2. Audit and Finance Committee Re rtd The re 3T -ainia Fuume Committee relates primarily to accounting procedures on which comments will be made by the County Auditor-Controller. It should be noted that a new system gelated to cash receipts of the Office of the County Tax Collector is being designed and that it is expected that the system will be operational for December, 1972 tax collections-s the 1971 and some prior Grand Juries have commented on this matter from the viewpoint of. maximixing interest earnings. 3. Civil Service Committee. The report of the CIVII MERU UaiMee deals with the work of the Civil Service Task Force (and in particular with the recoemnendations of the Task Force on aaaanageanent prerogatives as set forth In the County ]Moyer-Ekogloyee Relations Ordinance, and on the composition of the Civil Service Commission) and the position of Count yy Hewing Officer. The Committee urges that the recommendations of the Task force on changes in the Count Employer-Employee Relations Ordinance be disapproved, that the recommendations of the Task Force on the composition of the Civil Service Commission be disapproved, and indicates that there is no need for a County Hearing Officer. It may be noted that the 1972 Government Operations Committee is now reviewing the County Employer-Employee Relations Ordinance at the behest of county employee groups, that the county civil service ordinance (adopted in 1944) has not been substantially changed to fit changing times and circumstances, and that the County Hearing Officer is also available, at the discretion of the Board of Supervisors, to hear matters other than referrals from the Civil Service Commission. Board of Supervisors 3. March 6, 1972 4. Hospi4le HospitalClinics and Social Welfare. The report of the HospIltAL.- ea and ocial Welfare Committee points to the substantial expenditures being made for social programs (welfare and `hospiital programs), indicates that public assistance and medical care are provided under com�pplex arrangements which precluded a comprehea�sive committee evaluation, and states that the committee did not receive factual answers to many of its inquiries from the county agencies involved. The committee also points out that welfare :programs are sub ect to public criticism.and sone of the criticism was justified, that welfare administrative costs appear to be Haigh, that fiscal controls of welfare costs were improved as indicated by the fact that 1970-1971 expenditures were kept well within budget allocations, that the public should be aware that the county social service organization was deeply concerned about any fraudulent claims for public assistance, and that some workers in some of the offices of the Social Service De t gavve the impression that a fu11 days for a full days pay was not being given. In connection with hospitals and clinics the committee advises that it was convinced that efficient use of hospital facilities (public and private) would result in a general improvement in service without increased expenditures. The committee offers critical comments about hospital operations in the Concord Hospital District, the Pittsbur Hospital District, and the West Contra Costa Hospital District over which the hoard of Supervisors has no Jurisdiction- in this connection the committee criticizes the proposed joint powers non-profit corporation agreement between the Concord Hospital District and the County of Contra Costa for expansion of district hospital facilities, and states that the expansion should be financed with revenues from the sale of bonds which means of finaucine the committee asserts would be supported by district residents if expansion were demonstrated to be necessary. Hoard of Supervisors 4. March b, 1972 With respect to the County Hospital the committee points to its ging role in. terms of services for mentally ill and the mentally retarded and d states ates that the physical facilit ss of the hospital are poor with particular reference to the laboratory, asserts that there appears to be- little cooperation between the County Hospital and district hospitals and private hospitals, Band mentions controversial budget over-runs of the. County Hospital. -in its summary and general recominandations the committee reasserts that there is a lack of cooperation between district hospitals and the County Hospital and private hospitals,, states that the Comprehensive Health Planning Association of Contra Costa County should assume a stronger role in the coordination of health facilities within the county, recommends that the County Hospital and County Health Department and Office of the County Coroner should be merged, states that new laws =at be introduced to prevent district hospital professionals from easing tax supported facilities forrofit, And urges that the 1972 Grand Juan cont to investigate health services within the county. The report of the Hospital, Clinics and Social Welfare Committee has been referred to the County Welfare Director .for detailed review and his report will be submitted to the Board of Supervisors as soon as it is avail- able. As noted by the committee* the overall social progrikm area (public assistance and medical care) is involved andcomplicated; in-depth reviews require an extended length time and concerted efforts. It may be noted that organizational consolidations were effected in the social program area prior to issuance of the report of the 1971 Grand Jury. Board of Supervisors 5. Itch Ea,. 1972 5. Judicial Committee. In its report the c ee refers to its recommenda- tion orpp"o�sing legislative authorisation of axe additional Superior Court Judgge, reviews and mks suggestions in connection with its discussionsth the presiding judge of the Superior Court, recomiends that rules on civil trial juries adopted by the California Judicial Council be extended to criminal: cases, urges that the judge assigned to the juvenile court continue to serve in .that role or several years to obtain maximum benefit fromhis a cperiex►ce in that capacity, ffitates that it is daasiraable that the Superior Count concern itself more directly with the operation ,of the Probation Department, recom- mends further lower court consolidations and the establishment of a single countywide msunicipal court with one toga P —42.0 psi Court Marshall assisted by Deputy Marshaals, criticizes severely the current accommodations for the Walnut Creek Municipal Court and urges prompt action on replac ust facilities, recommends the use of a aspecial referee or commissioner in lieu of a municipal court : judge in hearing 9=11 clams and traffic m tteras, urges legis lative actions so as to permit the reduction of jurors from 12 to 6 is misdemeanor cases, rec=me ds the mmmber of jurors required to it or convict in felony cases changed from a unanimous vote to as vote of 10 to 2, and concludes its report by a serting that there is a need for revamping and modernizing of the entire court system., It may be noted that the Legislature and the. Governor did, in fact, approve another _judge- ship for the :MIArior Court, that the board. of Supervisoras proceeded in the direction* of establishing the minnircum nmber of lower courts In the county (the original number of . 17 lower courts has now been reduced to five), that there is still aproblem with respect to financing of new facilities for the Walnut Creek Mmicipal Court., and haat the committee suggestions with respect to Superior Court procedures might be more appropriately made by the Superior Court Judges than by the Board of Supervisors. Board of Supervisors 6. March 6, 1972 6. Law Enforcement Committee. The Law Enforce- men ee s e its comments and recommendations in two parts, one being its main report covering city and county police service, junior college police apprentice prograams, County Disaster Office operations, and county ambulance service and the second being a sup lementary document on county jail operations gjail and rehabilitation center). -In reviewing police service the committee considered police officer training, prisoner . Pick-up by the Office of the County Sheriff, the use of portable tape recorders in patrol cars, the matter of control of flea markets, the use of helicopter service, the potential of the use of city jails for incarcerating drunk drivers, and the desirability of public officials riding with beat patrolmen to become directly familiar with police services. In terms of county law enforcement the committee cents on the need for new jail . facilities as well as the objective of reducing jail population through rehabilita tion programs, criticizes the rehabilitation center operation because some work at the facility is performed by paid workers which it believes can be done by iammatess considers additional security to be needed at the County ftspital when prisoners are receivin medical care, recommends a classification of Jailer be established rather than use Deputy Sheriffs' in that .role, urges better procedures for obtaining approval of search warrants from judges, recommends more rigid control of Private police protection agencies including the requirement that personnel of such agencies have uniforms of a different type than police officers, proposes countywide registration of bicycles to deter thefts, suggests that the Probation Department obtain all available data from police reports for the files of felons, recommends that the Board of Supervisors 7. March 6, 1972 Office of the County Sheriff assign three patrol sergeant supervisors to each shift, comments on the impression that some judges are too lenient in setting bail and imposing penalties, proposes that additional police services be provided in the unincorporated E1 Pueblo and West Pittsburg and North Richmond areas, and recommends more intensive police training in the use of firearms. The committee comments on the police services of eleven of the fourteen cities in the county (Cities of Clayton, Hercules and ette are excluded) and of the Kensington Community Services District and comes specific recom- u*mdations in most cases. In the case of the Contra Costa Junior College District, the committee recommends improvements in the police apprentice program at Diablo Valley College and the introduction of such a . program at the- Contra Costa College. In the case of the County Disaster Office, the committee recommends that the office remain as a separate agency (as at present rather than be combined with the Public Works Department as has been proposed), compliments the office on the service which it renders to the public, points to the space needs of the agency, particularly when county personnel out be mobilized at a central pot during disaster situations, indicates the agency has additional equipsmant .and supply storaagge needs, recommends that the county communication system be split , with the Office of the County Sheriff to retain control over the law enforcement system and. so that the Disaster Office will be responsible for operation of the remainder of the system (such as for public works, animal control, fire, and ambulance functions) on an around the clock basis, and proposes that the county communications engineer be transferred to the jurisdiction of the Disaster Office. of: � �,srv `ars 8. March 6, 1972 The committee recommends strongly that a publicly owned ambulance service be developed io provide countywide: emergency service, suggests that the U. S. Department .of Trans- portation be contacted with respect to federal grants for equipment for the proposed ambulance service, and proposes that the hospitals in the county develop an improved system for transporting outpatients and avoid tying up ambulances required for emergency purposes. . In its supplementary report the committee criticizes security provisions at the rehabilitation center inclusive: of .supervision of prisoner work trews, impresses concern: over security arrangements in the county jail in Martinez, points to a weed to segregate prisoners contingent upon the seriousness of their offensesg and urges that the Office of the County Sheriff utilize the services of the best available personal for duty, as jailers. The County Sheriff has already submitted to my office a report containing is on the recomutndations and proposals of the Law Enforcement Committee of the 1971 Contra Costa County Grand ,fury and this report will be transmitted to you shortly along with my own comments. It maybe noted that some of the estions of tLaw Enforcement Committee have been implemented read detailed attention is 'being given to others. 7. Plana and Public Works Committee. The repo o e g c orks Committee deals with some of the functions of the Public Works Department with particular emphasis upon airport operations, the work of the Planning Department primarily in terms of public relations and qualifications of personnel, and the responsibilities of the Contra Costa County Flood Control and Water Conservation District with consideration given to desirable changes in legislation. Board of Supervisors 9. torch 6. 1972 In, the case of the Public Works Department the committee points to the need. for expediting the TOPICS (Traffic Operations Program to Improve Capacity and Safety) program which has been subject' to delays as a result of compli- cated regulations pertaining thereto, points to the inadequacy of the present centra, Public Works corporation yard for which a replacement site has been purchased, commends the emphasis upon ecological and aesthetic facets of Public Works programs inclusive of pplanning for .roadside pathways for use as bicycle paths and horse trails, and auggests the need for improvement in the handling of receipt boob and cash receipts. The committee, after. reviewing county airport operatious, .recommended that the airport master plan be updated and advises that nothing has been done since 1950, that the airport be cperated on a 24 hour basis, that depreciation on airport property donated by the federal government be excluded from air- port financial reports, that bids be solicited for airport fuel and services (with hours of operation specified) and a contract being marded to a tingle firm, and that the air- port be placed under the management of a s dial airport commaiision. With regard to the last rec gndation, the committed in its review points to poor airport organizational arrangements and differences of opinion between personalities and also suggests the need for night security at the airport. With respect to the Planning Department the . committee asserts that this agency has a poor manage in terms of public relations, that a system for evaluating employees on a regular basis should be introduced and that stronger andmore capable management is required. In the rase of the Contra. Costa County Flood Control and Water Conservation District the committee is comnplitaaentary about the work accomplished by the district and about its success in obtaining federal grants, indicates that consolidation of the district with the Board of Supervisors 10. larch 6, 1972 Public Works Department would be advantageous but haat the merger should be preceded by the consolidation of the flood control district with the Contra Costs County Storrs Drainage District and by a number of cages in .laegis- lation for application to the combined flood control and drainage agency. The Public Works Director has already submitted comments to sae on the part of the Planning and Public Works' Committee report which pertains to his agency and I expectto receive similar comments shortly from the Planning Departments the Contra Costa County Flood Control and Water Conservation District and the County Disaster Office. The comments mentioned will be transmitted to you along with my review of the committee report. It is worthy of nota that the airport master plan mentioned by the committee was updated .an d adopted in November,, 1970 after a series of public hearings-sand the legislation meantioned by the committee in counection with its review of the work of' the Contra Costa County Flood Control and Nater Conservation District has. been submitted for introduction in the 1972' session of the California State Legislature'.• 8. Probation Committee. in its report, the on C55 Tee asserts that _the objective of arobatio systa is ilitation and that is report is presented from that pout of view. The cvm4ttee points out that the probation system involves manor agencies and requires their concern and cooperation to be effective. The committee gave attention to probation facilities including (roup homes, the Byron Boys 14mch, the Juvenile Hell, and the Girls Treatment Center (located at Juvenile Hall). In the case of the Las Trampas Youth Village (four group homes), the committee suggests the homes be closed due to their remote location and high cost of operation and that in the meantime the boys placed there be given grounds maintenance and garden duty . Board of Supervisors 11. March 6, 1972 assi ts; in the casae of the Walnut Creek group home, the committee also suggests grounds meinteumce duty assignments for the bgy..s and commm is on :parking a. county car at the home. In a general sense the committee questions ,vahether the objective of providing a homelike atmosphere through the use of .group homes is beiaig achieved. In the case of the Byron boys Ranch, the cc mittee comments on its remote eastern county Jocatlon, states Haat it should be kept operating at full. capacity to relieve overcrowding at Juvenile 11, and indicates that a comparable facility is needed in the wasters area of the comity. In the case of the Juvenile Hall the committee is extremely critical of overcrowd- d the practice of placing more one duns child in a rooms iutended for one, and asserts that the heating and ventilation in the building are. poor. The committee is compli- mentary about the facilities provided for the Girls Treatment Center (located within the Juvenile Hall) taut is -veiy criti+Cal_ of the use of such facilities to relieve overcrowding in the Juvenile ball section for the detention of delinquent girls. The committee points out a need to segregate children who are committed for the first time from children who have already been adjudged delinquent,, and emphasizes the mead to reduce the length of detention period*. In reporting generally on the Probation Department, the committee mitteee states that the department seems to be well organized and has capable staff. The committee asserts that the hours of probation officers should be made , flexible, that the department is not adequately staffed to fulfill its purposes, that probation Investigations and supervision require inten- sive and time consuming work, that the 1971-1972 personnel requests of the Probation Department were cut back substantially by the County Administrator and the Board of Supervisors, and that in the opinion of the committee all personnel requeested by the Probations Department is urgently needed. The committee also points out that the County Probation Officer is Board of Supervisors 12. larch 6, 1972 responsible to the Superior Court for the attainment of results¢ but that the apppropria- tions for his department are made by the Board of Supervisors and that consequently the efforts of the department and the court may be nullified unless the Board of Supervisors acts wisely on budget requests; in this connection the committee states that parsimony where the probation activity is concerned is clearly false economy. The committee made c mtacts with various groups and persons having a direct interest in the probation activities; these included the Juvenile hatiCeL Co. ommission and Delinquency Prevention Commission, the Foster Parents Association,. the Contra Costa County Employees Association (Local 1), and a representative group of deputy Irobation officers. The c—mI tee found tself in Bement with the work and aims of the Juveni a Justice Commission and Delinquency Prevention Commission; 'finds the foster home a very desirable rehabilitation program, states that . the services of foster homes are not being used to the full possible and urges more intensive use and also the licensing of additional foster homes, indicates that the payments made to foster hoaxes for child care are relatively low and suggests that a study be made to remedy this situation, and mentions that responsibility for the care of dependent children was trans f erared from the Probation Department to the Social Service Department and states that because of the divided respon- sibility for the care of children, close departmental cooperation is required; compli- ments the representatives of the Contra Costa County Employees Association (Local 1) for their viewpoints on probation and their contribution to the Grand Jury in the form of . a 40 page report; and expresses concurrence with the viints of representatives probation officers who it states wish to make desirable changes in the probation system. Board. of Supervisors 13. Murch.6, 1972 In its conclusions the committee indicates that the probation Department and related agencies are successful to a degree,. but that in the opinioti of :the committee it is a stasll degree: in terms of what needs to be dons; that the county is spending a large amount of money for the Probation Department and that the committee recommendations would increase that amount slightly; that it is Concerned that the county intends to make greater outlays- of capital utlays of capital farads and operating expenses; and that too much wTha. . is placed on detention in Contra Costa County while other counties In California anal across the nation are utilizing more modern and productive techniques and programs. The committee criticizes the nonprofit corporation arrangement utilized by the county to expand Juvenile Hall facilities after rejection by the voters of bored issues for that purpose, finds it to .be a disappointmm�ent that the Probation Department is in agreement with such expe rasion, states that the existing Juvenile Hall is sufficiently large to house children who nut be detained, that many alternate ideas have been presented to diminish detention requirements. concludes that county officials are out of touch with regent progress in the probation field, and suggests that unless there is a ctaange of direction the present county officials should be replaced by men with steeper pe tion and more flexibility and greater forest. The Probation Committee report bets been reviewed by the County Probation Deppoaartment .and the departmental comments will Sb trans- mitted along with my comments to the Board of Supervisors at an early dated It may be noted that the report of the committee conflicts directly with the report of the 1970 Contra Costa County Grund Jury in several respects. It may be noted also that the Probation Committee did not indicate the means of financing the various proposals which it made; the additional, person nal which the committee recommends, for example, would involve an additional annual county. expenditure Board of Supervisors . 14. March 6, 1972 from property tax revenues of over $400,000. It may be noted further that the budget of the Probation Department was increased between the fiscal year 1965-1966 and 1970-1971 from approxi- mately $3,200,000 to roughly $7,100,000. 9. SR2cial Districts Committee. Three reports were develogO by the SpiElal Districts Committee. The first report deals with the subject of its survey of fair employment practices in Contra Costa County; the second, report sets forth recommendations on inereas- ing the salary of Supervisors and on their official status; and the third report contains recoaa�ndations on the provision of funds so that Grand Juries may employ consultants with particular reference to review of specialized county functions and to review of special district activities. With respect to fair employment practices, the committee states that its survey shows that, In a review of 88 organizations and over 25,000 jobs, the overall statistics show 5.9 der cent black .employment as cured to a 7.4 per cent population ratio and show a black hiring record of only 3:85 per cent by intra- county districts excluding those in the cities of Richmond and .Pittsburg; points to the good example of the Bay Area Rapid Transit District in developing a positive program for minority hiring; and recommends that the Board of Super- visors take the lead in encouraging affirmative minority hiring practice statements, that the Board of Supervisors require a yearly minority employment report of all departments and agencies within its control (with the report tailored after Federal Employer Information Report EEO-1), and that the Board of Super- visors and the Grand Jury encourage all Independent and inter-county districts to take part in the affirmative action program recom�aended by the committee. Board of Supervisors 15o March 6, 1972 The committee recommends, with respect to the Board of Supervisors, that the salary of each Supervisor be fixed at $19,200 (present salary is $14,500); that no Supervisor be permitted to earn outside income other than from personal investments held prior to being elected a Supervisor; that each Supervisor be provided with an administrative assistant to serve at his pleasure (at an anticipated salary range of $1,000 monthly); and that such assistants be employed so as to perform independent research inasmuch as present Administrator system can only be a conciliator and arbitrator.01 In terms of the hiring of consultants, the committee recommends that the sum of $25,000 be appropriated for the use of the 1972 Grand Jury to pay for such services so that particular county functions, such as electronic data processing, and the work of special districts, such as the Bay Area 'Rapid Transit District, may be investigated with the aid of persons with special knowledge. The reports of the Special Districts Committee are being reviewed from an administrative standpoint although some of the content of the reports require attention in terms of policy determinations by the Board of Supervisors. It may be noted that special county efforts have been made to provide an opportunity for the employment of minority personnel and such efforts are being continued. It may be noted also that the employment of emsultants must be evaluated in terms of desired objectives and costs in each case and that consultants have frequently been engaged by the county to review, make recommendations on, and implement improvements in the conduct of particular functions; the county data processing operation, for �. e, was the subject of detailed study by consultants in 1969. Board of Supervisors lb. March b, 1972 . 10. Taxes and Assessment Committee. The report of the Taxei 03 AXsess-Me-nTommittee is a forceful and well documented presentation of the facts related to the present extremely . onerous property tax climate. The committee points out that under current circumstances an undue burden is placed upon the small businessman and upon the homeowner (particularly the retired aged, and poor), that no action has been tam at the state level to relieve the situation, haat preferential treatment has been given to ceertain categories of. taxpaYeras, that the declining assessment ratio being applied to utility proppeerties by the State Boare� of Ee lima do has a very adverse effect upon, thee .taxpaying status of otheer �teggori.es Of property owners.. and that immediate state legislative .action is weded to diminish the oppressive property tax �cequirents The committee after a review of the reom- mendations of they: 1'970 GrandJury on the Office of the, County Assessor indicates that progress 1n, Implementing theme has been made andpoints out the further steps .which it deems desirable. The committee recommends that the property assessment lien date be fixed as of January 1 (rather than Xarch 1), that an average inventory value be used for property taxing purposes, that action be taken through legislative measures and 1 informing the general public to avoid and eliminate preferential tax treatment, that the , method of establishing the market value of utilities be made more uniform with the formula used by County Assessors, and that further lowering of the ratio used in assessing utility , properties be discontinued until such uniformity is achieved. The County Assessor and I are in general agree- meat with the contents and recommendations of the report of the Taxes and Assessment Committee; the detailed comments of the County Assessor will be submitted shortly along with my own. Board of Supervisors 17. March '69 1972 11. General Counts and recommendations. The 1971 Grand Jury Includes in its TM1 report a one page statement ofgeneral counts and recoanm+ndatLong. In the statement the Grand ,Tory criticizes the establishment and use of nonprofit corations as a device to circumvent voter approval of bond issues, cites the addition (now in progress) to the Juvenile Hall and the construction of the County Administration Building as examples of the nonprofit corporation arrant, and recon® mends that the 1972 Grand Jury a an independent firm of consultants to Lveitigate the efficiency of all departaments of the county government (in addition to the employ- ment of consultants to investigate special districts as sewmwnded by the Special Districts Committee of the. 1971 Grand Jury). It may be voted that the hoard. of Supervisofa-- wader the provisions of Section 25351 of the California Government Code and of court decisions related thereto has the duty to provide facilities for county goverxmtent functions. It' may also be noted that in the case of the addition to the Juvenile Hall, 60 per cent of the voters approved bond issue financing in the first balloting (in 1967) on this proposal and -that 65 r cent of the voters approved bond issue fia :LM in the second balloting (in 1968) on this proposal; in both election*_ approval of bond issue financing failed to receive the required two-thirds vote although a substantial *majority vote In favor was cast in both elections. The non- pprofit corporation arrangement which was used in order to alleviate the serious overcrowding at the Juvenile Hall provided relatively favorable financial results taking into account the high interest rates which prevail. It may be noted further that the County Administration Building was not built under a nonprofit corpor- ation arrangement but under a lease-purchase agre=d�iu th the Contra Costa County Retire- anent this case, the equivalent rental rate is far below haat which is now necessarily being paid for the straight lease of less satisfactory privately owned space. Board of Supervisors 18. larch 6, 1972 Prior counts have been made with respect to the employment of consultants (as suggested. by the Special Districts Committee); the over- all investigation suggested by the Grand Jury must be similarly considered. 12. Press Releases. The 1971 Grand Jury approved ssuance o press releases in behalf of its Hospital$ Clinics, and Social Welfare Committee, its Judicial Committee, its Law Enforcement Committee, its Public Works and Planning Committee,. its Probation Committee, its Special Districts Committee (3), and its Tax and Assessments Committees; copies of these press releases are included.- In its final report. Tfne ppress releases. are generally excerpts from committee reports and do not reipdre review and c mkents separate from attention to such reports. it is recommended that the Board of Supervisors acknowledge receipt of these preliminary summary cents on the report of the 1971 Contra Costa County Grand Jury and direct that a copy of them, be placed on file in the Office of the County Clerk--with the under- standing that detailed cents from. county agencies and my office will be submitted later for review and action by the Board of Supervisors. JF&B/a$ encls. TJOLE OF CONTENTS PAG E AUDIT AND FINANCE. . . . . . . . . . . . . . . . . • . . . . . . . . . . • . . . . . . . . . , . . CIVIL SERVICE . . . . . . . . . . . . . . . . ... . • . . . . . . . . . . . . 18 GENERAL COMENTS AND RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . 136 HOSPITAL, CLINICS AND SOCIAL WELFARE. • . . . . . . . . . . Y . . • . • . . . . . 22 INTRODUCTION TO COMMITTEE REPOR'T'S. . • . . • . . . ► . . . . . ♦ • ♦ • , • A • • • . � JUDICIAL. . • • . • . • Y q • • • • • • ♦ . • i p • O I • o . • . • . • ♦ . tl } ♦ T • 6 O • . • a T 0 . • . . 31 LAW ENFORCEMENT d . O . . 4 . • . . . . . . O . Y • . J (. O a . • . . v . . , a . . • • Y • i • • O • p 36 PL+a.sq►iING AND • WBLIC WORKS. • . a • Y Y . b . • . . . . . . • b 4 p i • Y k • O O q Y d • • q 55 PRESS RELEASES. . . . O . . . O . . . . . . . . . • • 4 • P k ♦ • • P t . a H . • 6 • o • • . D • • O • 1-37 PAYw/JV33•J.i Mal' x • O o o J • . . O p a i o • O • . . . . . O • * q o Y d • • . . . . . . . • Y q 6 • p Y. . 9 O • • 66 SPECIAL DISTRICTS FAIR EMPLOYMENT PRAC'T'ICES XN CONTRA COSTA COUNTY. . . . . . . . 88 RECOMMENDATION FOR MODIFIU-MON OF SUPERVISORS' STATUSAND SALARY. . . . . . . • . . : . . . . . . . . . . . . . . . 96 FUNDS 10 HIRE CONSULTANTS FOR THE GRAM 98 TAXESASSESSMENTS . i . . . . . . . ♦ . . . . . • . a D • v A . . O O p ♦ • ! . a • 0 • d q 112 F. young$ February 4, 1972 Sheriff-Coroner Attention st. D. Ramsay J. P. : I 1 OFFICE OF THE COUNTY ADMINISTRATOR CONTRA COSTA COUNTY Administration Building Martineau, California To: Board of Supervisors Dates March 15, 1972 From: Jo Po McBrien, Subject: Report of Judicial County Administ tor Committee of 1971 l�l Contra Costa County Grand Jury In its report the Judicial Committee refers to it#- recommendation opposing legislative authorization of an additional Superior Court Judges, reviews and males suggestions in connection with its discus- sions with the presiding judge of the Superior Court, recommends that rules on civil trial juries adopted by the California Judicial Council be extended to criminal cases, urges that the judge assigned to the juvenile court continue to serge in that role for several -years to obtain maximum benefit from his experience in that capacity, estates that itis desirable that the Superior Cowart concern itself more directly with the operation of the Probation Department,, recom- mends further lower court consolidations and the establishment of a single countywide municipal court with one top Municipal Court Marshal assisted by Deputy Marshals, criticizes severely the current accommodations for the Walnut Creek Municipal Court and urges prompt action on replacement facilities, recommends the use `of a special referee or commissioner in lieu of a municipal covert judge in hearing small claimand traffic matters, urges legislative action so as to . permit .the reduction of jurors from 12 to 6 in misdemeanor cases, recommends the number of jurors required to acquit or convict in felony cases be changed from a unanimous vote to a vote of 10 to 29 and concludes its report by asserting that there is a need for revamping and modernizing of the entire court system® My comments on the report of the Judicial Committee of the 1971 Contra Costa County Grand Jury are as follows: to The Legislature and the Governor did , in fact, approve another judgeship for the Superior Court® 20 The Heard of Supervisors has proceeded in the direction of establishing a r of lower courts in the county; with the recent establishmaent of the West Mtaticipal Court District the original number of 17 lower court districts has now been reduced to sixe- Board of Supervisors 20 March 159 1972 3. The committee suggestions with respect to the Superior Court have been referred to the Superior Court Judges. 4. Some of the suggestions made by the committee with respect to the courts have statewide implications; a copy of the report of the committee has been transmitted to the Judicial. Council of the State of California. My recommendations with respect to the report of the Judicial Committee of the 1971 Contra Costa County Grand Jury are as follows: 1. The Board of Supervisors should adopt an ordinance providing for the consolidation of the West Municipal Court District and the Ricbmand ftmicipal Court District in the event of a judgeship vacancy in either court. 2. The Municipal Court legislation which has been introduced to cover salaries of municipal court personnel should be amended to provide for the staffing of a four jud*e municipal court so that the consolidation mentioned in 1 above may be effected in the event of a judgeship vacancy. 3. The Right of Way Division Public Works Departments, should be directed to seU out and negotiate on a preliminary basis for a site for municipal court facilities in the western area of the county on the preaxuption that the consolidation mentioned in 1 above is to be effected. 4. The Might of Way Divisions, Public Works Departments, should be directed to arrange for suitable rented quarters to house the Walnut Creek Municipal Court and the Office of the Walnut Creek Marshal, in lieu of the present inadequate quarters for the court and the Office of the Marshal. 5. The Right of Way Divisions, Public Works Departments should be directed to seek out and negotiate on a preliminary basis for a site for central county municipal court facilities on the presumption .that . the Mt. Diablo Municipal Court District and the Walnut Creek Municipal Court District will be consolidated at a later date and on the presstion that the City of Concord will need for its purposes the space now occupied by the Mt. Diablo Municipal . Court and Office of the Mt. Diablo Marshal in the Concord Civic Center. Board of Supervisors 3. March 159 1972 It may be Noted that legislative attention has been f to overall changes in the organization of the court systems California and that the above araC ndations would have to be modified if any such legislation were adopted. It is recomtended. that the Board of Supervisors acknowledge ree.eipt of this reports, that it be referred to the Board Government Operations Committee (Supervisors A. M. Dias and .3. Eo Moriarty) for review and report to the Boardq and that a copy of it be placed on file in the Office of the Comity Clark, JPMcBzbgg OFFICE OF THE COQ ADMINISTRATOR 'CONTRA COSTA CODS Administration Building Martinez, California To: Board of Supervisors Date: March 15, 1972 From: Jo P. McBriean, Subject: Report of Judicial County Admini.at ator Committee of 1971 Contra Costa County Grand Jury In its report the Judicial Committee refers to its- recommendation opposing legislative authorization of an additional Superior Court Judge, reviews and males sug estions in connection with its discus- sions .with the residing ju ga of the Superior Courts, recommends that rules on civil trial juries adopted by the California Judicial Council be extended to criminal cases, urges that the judge assigned . : - .to the juvenile court continue to serve in that role for several 'years to obtain maxim= benefit from his experience in that capacity, states that it .irs desirable that the Superior Court concerns itself more directly with the operation of the Probation Departwnt,, recom- uwnds further lower court consolidations and the establisbment of a single countywide municipal court with one top Municipal Court Marshal assisted by Deputy A�rshals$ criticizes severely the current accomseodations for the Walnut Creek Munnicipal Court and urges prompt action on replacement .facilities, recommends the use 'of a special referee or commissioner in lieu of a municipal court judge in hearing X11 claire and traffic matterso urges legislative action so as to . permit .the reduction of jurors from 12 to 6 in misdemeanor c;asess recommends the number of jurors required to acquit or.. convict in felony cases be changed from a unanimous vote to a vote of 10 to 2, and concludes its report by assert that there is o need for revamping and modernizing of the entire court system. My comments on the report of the Judicial Committee of the 1971 Contra Costa County Grand Jury are as follows:. L The Legislature and the Governor did, in fact, approve another judgeship for the Superior Court, 20 The Bo .rd' of Supervisors has proceeded in the direction of establishing a minimum. naamber of lower courts in the county; with the recent establishment of the West Municipal Court District the original amber of 17 lower court districts has now been reduced to sixo . Board of Supervisors 20 March 15, 1972 30 The committee suggestions with respect to the Superior Court have been referred to the Superior Court Judges. 4. Some of the suggestions made by the committee with respect to the courts have statewide implications; a copy of the report of the committee has been transmitted to the Judicial Council of the State of California. My re ions with respect to the report of the Judicial Committee of the 1971 Contra Costa County Grand Jury are as follows: 10 The Board of Supervisors should adopt an ordinance providing for the consolidation of the West Municipal Court District and the Richmond Municipal Court District in the event of a judgeship vacancy in either court. 2. The Municipal Court legislation which has been introduced to cover salaries of municipal court personnel should be amended to provide for the staffing of a four judge municipal court so that the consolidation mentioned in 1 above may be effected in the event of a judgeship vacancy. 3. The Right of Way Division Public Works Department, should be directed to seU out and negotiate on a preliminary basis for a site for municipal court facilities in the western area of the county on the presumption that the consolidation mentioned in 1 above is to be effected. 4. The Might of Way Division, Public Works Departments, should be directed to arrange for suitable rented quarters to house the Walnut Creek Municipal Court and the Office of the W,slnut Creek Marshal, in lieu of the present inadequate quarters for the court and the Office of the Marshal. 5. The Right of Wag Division, Public Works Departments, should be directed to seek out and negotiate on a preliminary basis for a site for central county municipal court facilities on the presumption .that the Mta Diablo Municipal Court District and the Walnut Creek Municipal Court District will be consolidated at a later date and on the presumption that the City of Concord will need for its purposes the space now occupied by the Mt. Diablo Municipal Court and Office of the Mt. Diablo Marshal in the Concord Civic Center. Board of Supervisors 3. March 159 1972 It may be noted that legislative attention has beenggiven to overall changes in the orgaxntz tion of the court systems in California and that the above recommendations old have to be modified if any such legislation were adopted. It is re c d that the Board ofnpervisors acknowledge receipt of this msmora report, that it be referred to the Board Government Operations Committee (Supervisors A. M. Dias and J. E. Moriarty) for review and report to the Board, and that a copy of it be placed on file in the Office of the County Clerk. JPMcBzbgg OFFICE OF THE COUNTY ADMIVISTRATOR CONTRA COSTA COUNTY Administration Building Martinesg California, To: Board of Supervisors Dated March 20.9 1972 Report of Planning and Public Works Committee of From: 3e Po Mc.Bri s d Subject: 1971 Contra Costa County Comity Adoainia ,attor Grand Jury on Public Works Department In the case of the Public Works Departments, the Planning and Public Worm Committee of the 1971 Contra Costa. County Grand Jury points to the need for expediting the TOPICS (Traffic Operations Proram to Improve Capacity and Safety) program which has been sublect to deellas as a result of complicated regulations pertain- Ing thereto, polints to the inadequacy of the present central Public Works corporation yard for which a replacement site has been purchased® c s the emphasis upon ecological and aesthetic facts of Public .Works programeirclusive of planning for roadside pathways for use .as bicycle paths and horse trails.,, recommends that the Board of Supervisors make plans for favi such pa ays, and suggests the need for improvement in the ling of receipt boobs and cash receipts* The committee, after reviewing county airport operations,, recommended that the airport master lan be updated and advises that nothing has been cone since 1958, that the amort be operated on a 24 hoar basis,, that depreciation on airport property donated by the federal government be excluded from airport financial' reports,, that bids be solicited for airport fuel and services (with hours of operation specified) and a contract be awarded to a single firm and than the "airport be laced under the egement of a Special airp6it coamfssions W th regard to the last recommendationg the committie in, its rewie v points to poor airport orgy#national arrangements and. differences of opinion between personalities and also suggests the seed for night security atthe airport,. The Public Works Director has already furnished his comments orathe 1971 committee report to the 1972 Grand o He has also provided me with a mor dated February 15s 1 72 containing essentially the samecomments; a copy of that mamorandum is transmitted herewith. It should be noted that the attar is to which the Public. Wor Director refers in his memorandum to me is a summary of Grit jury re adationse and actions in connection therewith, for the periost from 1.953 through 1970.. Board of Supervisors 20 Mazrh 209. 1972 1 am in a apt with the comments of the Public Wore Director on the rec datio of the 1971 ttee; my additional comments are as fmlloera s 10 The sidepath re ndation of the committee represents a desirable objective; the funding of a sidepath program mut be evaluated in term of weeds or other facilities and services (public works and other county agencies). 20 The inclusion of depreciation as now set forth In airport financial statements prepared by the County Auditor-Controllerp is in Brae with accepted �yaccouseti�tg principles, is properl and should be WMt6 30 1 disagree with the committee re6 tion that the uchanim Field =Matooavyt ofcoun o airperrtt devel peons (at infuture) be pluser the the ai q*rt, commission. (a) Substantial progress was not made at Buch nan Field until its developpme�nt atad operation were made responsibilities of the Public Works Department (in 1961) although prior to that time there were dedicated efforts by an Airport Advisory Committee and Ai rs t0 mama the airport a t n$ fac l lity; the direct alt with the Public. Works Department has grade available. as neededs through the Public Works Director$ the full ement andtechnical expertise of an;jz;o-f, ssional employees to pp►ort the reed spaecialised eicperiencee N the Airport Managero (b) Two plural bodies already concern themselves with airport devel t and activities; one of these is the nem yy created Airport Laud Use Commission and the other is the Airport Liaison Committee; from these two bodies there should be forthcoming advisory input to sure both the interests of air trans- portation and the general public- with direct meaceagemeaat properly under the Public Works Department and the Hoard of Supervisors. Board of Supervisors 30March 208. 1972 (c) ' Differe s of opinion will -develop. no -matter howthe airport. is mufted .beemse the. nt involoes cmtt o .s which eat be exercised which fpm t to tIm will be regarded -as undesira 'ble a foo of the parties subject to, them—Partic- ularly -ft s when the rules 8= not obseried and auftreemmt action =ust be taken, IIi,the ca"' of the &Lzp6rt it b o did .be noted that th -o eratia is properly clmsified as an enterprise,, function; and ", suc]4� effoits should be made to fix raters a derive ate frog to di ct beneficiaries An amomts 'adequate to ter ,'�c�s�ts of� tie (ia�clusive of =depreeciati )e Oeasi losse4 4.n Bass than substantial, is need not b� r critiecal, as to require .±diraet�,e�a=unts beca" tFse ai rt' of of Vi r al public beuefii :-4;mive of national, dde i�gse t ctrl Mate It. ie ice. ... . . . estthat receipt of the s oil -andum report be, acknowledged tit it be referred to the Board: dove 'Operations. Comittee (Sup�arvisors Aa M. Dias. and.j A, *k riart" ) for semiaw and report to .t .lBoard,. and -that a copy. 6".Vit be placed eati fit in the Office, of the County Clerk4 JPYtIB;,bgg ea�l4 . PUBLIC WORKS DEPARTMENT CONTRA COSTA COUNTY DATE: February 15, 1972 V•' TO : J. Pe McBrien, County Administrator v' f RECTIV CI FROM: Victor We Sauer, Pub i i c 'Works Director D FEB lid 197 114i" Costa County %4�ministrotor SUBJECT: Grand Jury Report i✓ In answer to your memo of February 4, 1972' we have prepared our comments on the, 1971 Contra Costa County Grand Jury Report, The 1971 Grand Jury recommendation regarding handling of receipt books and cash receipts has been accomplished. The . recommendations that the Board of Supervisors plan for funding of a sldepath prom . grant Is, of course, a policy matter for the Board to resolve. The remaining recommendat i ons concerning the Buchanan Field Airport have been 11-sted be 1 ow with. our comments beside them, Committee Co rants and Recomm9ndat i ons Pub i I c Works Deeartrwnt Comments 16 Recca nd updating the Master ie Based on the 1968 Master Plan Study by Piano Leigh Fisher Associates', a nationally recognized aviation consulting firm, a new Master Plan was prepared, app roved by the Federal Aviation Administration, and subsequently adopted In November 1970 after a series of public hearings. 2e Buchanan Airport be wanaged, on 2e The 16-hour period during which the aitro- a 24-hour basis. port is manned coincides with the FAA Air Traffic Control Tower operation. At the present time little airport activity occurs during the hours from 11 p.mo to 7 a.m.; hwever, runway lights are on and the airport is open to aircraft traf- fic raf- fic on a 24-hour basis. Airport records indicate that the question of airport security has not been a major problem up to the present time although we would concur that it would be desirable to have the airport attended on a 24-hour basis. The Sheriff includes the airport as a regular part of the patrol beat in this areae 3e Depreciation charges on Federal 3. Comments regarding the preparation and .. Grants should be eliminated and format of audit reports and financial a true enterprise accounting statements. for the airport are matters system should be adopted# concerning the County Auditor who has responsibility for such reports. CotS�l Hued o e a.. J. P. McBrlen, County Administrator Grand Jury Report February 15, 1972 Page 2 4. Recommendation that fuel ser- 4. Leases with .fixed base operators grant vices be put out to bid and fuel aervlds privileges upon compliance limited to one operating firm with minimum capital Improvement standards with hours of service .specified. and have the advantage of affording each aviation service operator a ready source of potentlgi customers for other aviation services. However, It may be possible to work out an agreement to provide more extended fuel service coverage with a s-ingle operator.. The Airport Manager wi 1 1 discuss this possibility with tho fixed bass operators whose consent would be required pursuant to existing lease agree- mentse 5. Recommend the Board of Super- 5. The organization and management of Buchanan visors place the Airport under Field is a perogative of the Board of the management of a special Supervisors. airport commission to super- vise Buchanan* Field and future airports. Attached Is my usual letter and attachments to the incoming Grand Jury. Ittee �. which also covers these points.. T VWSssgb Attachment i j� 4• .n 1 OFFICE OF THE COUNTY ADMINISTRATOR COQ, COSTA COUNTY Administration Building Martinez, California To: Board of Supervisors Date: Larch 20., 1972 Report of Plarmingand Public Works Committee of From: JD P* ,i xien,.. Subject: 1971 Contra Costa County Cownty s gator Grand Jury on Public Works Department In the case of the Public Works Departments, the Plying and Public Works Committee of the 1971 Contra Costa County Grand Jury points to the need for expediting the TOPICS (Traffic Operations Pro ram to Improve Capacity and Safety) program which has been subject to delays as a result of complicated regulations pertain- ing thereto, points to the inadequacy of the present central Public Works corporation yard for which a replacement site has been purchased® c the emphasis upon ecological aesthetic facets of Public Works programs inclusive of planning for roadside pathways for use .as bicycle paths and horse trails, recommends that the Board of Supervisors wake plans for funding such pathways, and aeats the need for improvement in the ling of receipt books rA uggcash receipts. The committee, after reviewing county airport operations, recommended that the airport master Ian be updated and advises that nothing has been done since 19589 that the airport be operated on a 24 hour basis, that depreciation on airport property donated by the federal goverament be excluded from airport f i maacial reports, that bids be solicited for airport fuel and services (with hours of operation =ry fied) and a tract be awarded to a side firma and that thertbe Vlaced under the management of a special airport commission* With regard to the last recommendation, the committite in. its review, points to poor airport organisational arrangements and'. differences of opinion between personalities and also suggests the Saeed for night security at the airport* The Public Works Director has already furnished his comments on the 1971 committee report to the 1972 Grand .fury* Eli has also provided me with a memorandum dated February .150 1972 containing essentially the same o nts; a copy of that memorandum is transmitted herewith* It should be noted that the attachments to which the Public. Worka Director refers in his memorandum to ami is asummary of Grand Jury recommendations, and actions taken in comection therewith, for the period from 1,953 through 19700 Board of Supervisors 2. March 20, 1972 I am in greement with the caawnts of the Public Works Director on the recommendations ons of the 1971committee; my additional comments are as follows: 10 . The sidepath re titan of the committee represents a desirable objective; the funding of a sidepath prog rqm rust be evaluated in terms of needs €oar other facilities and services (public works and other county agencies), 20 The inclusion of d��eeppreci.ati®n as now set forth al in airport £ivansta is prepared by the County Auditor-Controller, is in line with accepted anccovaating principles, is proper, and should be co�tinued0 30 1 disagree with the committee ret dation that theint of airport operations (at Buchanan Field at any county airport developed in the future) be placed under the assent of a special airport commission. (a) Substantial progress was not amide at Buchanan Field until its develomeent aid operation were made responsibilities of the Public Works Department (in 1961) although prior to that time there were dedicated efforts by an Airport Advisory Committee and Ai rt ers .to make the airport a t vin, facility.; the direct ali t with the Public Works througDepartment nthe Public Works aiDirectble toorgneeded, the full nagement and technical expertise of many parofessional employees to rt the arevred specialised experiences i f the Airport Manager. (b) Two plural 'bodies already concern elves with airport develo t and activities; one of these is the new y created Airport Land Use. Co mission and the other is the Airport Liaison Committee; from these two bodies there should be forthcoming advisory input to serve both the interests of air trans- portation and the general public--with direct aagea�nt properly under the Public Works E�epartment and the Board of Supervisors. y Beard of Supervisors 30Bch 209. 1972 (c) Differences of o inion will duel no .matter how thea rport. 3s moms ed because the management imolves controls which t be exercised and .which - from time to tieeg will be rnardeoa desirable by a few of the parties 9:cruliii t to. them—partic- ularly In cases are not observed and enforcementaction must be taken. Inthe the of the airport it sold be noted that the -operation is properly classified ,an enterprise Pions a as s �. .efforts should, be to fix rates sal derive rev .frau the dire dt benaficLaries :ln awmts adequate to C e;.6�ts of gyration (inclusive of :depre ci.ation)a tccae onai leasse� in less the substantial s: need not be Bard critical as to Pe cbrast#. recto e' the rport elements of gaveral public benefit .iwlusive of national 40ke to . ttributeso It is ,rgco himended that receipt of they sorandum, report be. acknowledgqd. ,that it be referred to the Bow Government Operations. committee (SuperVi.sors A. N. Dias. ea.J. L -Moriarty) for .revie and report to the .Be ard, a that a copy of it be placed on file in the Off ice of the County Clerk,*j JPftB;,bsg encl. PUBLIC WORKS DEPiiRTMENT C(D"ONT A COS'T'A COUNTY DATE : February 15, 1972 TO : J P4 McBrlen, County Administrator FROM: Victor W, Sauer, Pub l I c Works 01rectar FEB 16 19721 Coria County Administrator �• SUBJECT: Grand Jury Report In answer to your mmo of February 4, 1972, we have prepared our ccat+rwntA on the . 1971 Contra Costa County Grand Jury Report. The 1071 Grand Jerry recomrmndatl oa regarding handling of race i pt books and cash arca 1 pts has been acro"l i shad, The recommndations that the -Board of Supervisors plan for funding of a siddpath pro- gram rogfram Is, of course, a policy matter for the Board to reso l w, The reale i n i ng recommendations concerning the Buchanan Fl.o l d Airport have been 11•sted below with. our cosy nts beside them, Cotwi ttee Cets> wnta and. Recoamndat 1 ons Pub I I c Work r-ir-1 cont Gcmmnts w NGA' 'a'ienenmvmsiiRn M1Qa[�mi'fl�Ywas�wgOr I m Recc ,,*nd updating the Wistor' i., Based on the 1358 Master Plan Study by Plan. Leigh Fisher Assoclatss', a nationally recognized aviation consulting firm, a now. Master .Pian was p cepa ry d, approved by the Federal Aviation Administration, and subsequent i y.adopted In November WO after a series of public hearings. 2. Buchanan Airport t be taumigad on 2a The. 16-hour rArlod. Jur Ino which the a r-'' a 24-hour bas l a. port Is manned col nc i des tsi th the FAA Air Traffic Ccntrol Tower= operation. At the present tivw little airport activity occurs doring the hours from It p,m, to 7 a.m.; however, runway 'lights are on and the airport Is open to aircraft traf- f i c on 6 24-hour basis. Airport records Indicate -that the question of airport security Inas not been a major problem up to the present time although we would concur that It would be desirable to havo the airport attended ori a 24-hour bas l a The Sheriff includes the airport as a regular part of fire patrol beat In this a ad 4 3q preclation charges on Federal . 3. C;ommepts regarding thq preparation and ,. Grants should be eliminated and foraut of audit reports and financial a true; .enterprise accounting statements for the airport are matters system should be adopted4 concerning the County Auditor who has rssponslb l l i t4,' for such reports, ` ront I nue+d,.A a V J. P. McB r i e n, County Administrator Grand Jury report February 15, 1972 Pacge '2 4, Recommandat i on that fuel ser- 4, Leases with •fixed base operators grant vices be put out to bid and fuel servile privileges upon compliance limited to one operating firm with minimum capital Improvement standards with hours of service .specifled. and have the advantage of affording each aviation service operator a ready source of potgntlgl customers for other aviation services. However, it may be possible to work out an agreement to provide more extended fuel service coverage with.a single operator. The Airport Manager will discuss this possibility with the fixed base operators whose consent would be required pursuant to existing lease agree- Monts 5. Recommend the Board of Super- 5. The organization and management of Buchanan visors place the Airport under Field is a perogative of the Board of the management of a special Supervisors. airport commission to super- vise Buchanan Field and future airports. I. Attached is my usual letter and attachments to the incoming Grand Jury Committee, ! which also covers these points,VWStsgb . r I" Attachment P t: t. OFFICE OF THE COQ ADMINISTRATOR CONTRA COSTA COUNTY inistration Building Martinez, California Toa Board of Supervisors Date: March 20.0 1972 Report of P1 and Public Works C=Attee of From: J. Pot tri � a Subjects 1971 Contra Costa County County Admf air �cator Grand Jury on Public Works Department In the case of the Public Works Department, the Plamning and Public Works Committee of the 1971 Contra. Costa County Grand Jury points to the need for expediting the TOPICS (Traffic Operations Pro ram to rove Capacity and Safety) pro ggraa® which lies been subf ect to delays as a result of comaplicated regulations pertain- Lug- thereto, ertaain- Lug thereto, points to the inadequacy of the present central Public Works corporation yard for which a replacement site has been purchaseecd, commends the emphasis upon ecological and aesthetic f€aacets of Public .Works programs ianeclusive of playing for roadside pathways for use ." bicycle paths and horse trails, recommends that they Board of Supervisors make plans for funding such pathema s, and suggests the need for improvement in the handling of receipt books cash receipts4 The committee, after revieving county airport operations ea recom=mded that the airport master plan be updated and wises that nothgng has been alone since 1950, 'that the airport be operated an a 24 hour basis, haat depreciation on airport property donated by the federal government be excluded 'from airport fina=iasal reports, that bids be solicited for airport fuel and services (with hours of operation ified) and a contract be awarded to a single firm and than the sport be laced under the . emsnt of a spm airport commissions W�th regard to the last recommendation, tine committee Sn. its rea�e�g points to poor airport a�rga—aiaatioaaa-1 arrangements and: differences of opinion between personalities and also suggests the need for night security at the airport., The Public Works Director has already furnished his comments on the 1971 committee a report to the 1972 Grand! Jury, He has also provided me with aar memorkKbm dated Febroary 15j, 1972 containing -essentially the samecomments; a copy of that mi3morandum is trasmitt®d herewith It should be noted that the attachments to which the Public. WorksDLreeetor refers in his memoran&= to nae is As summary of Grand Jury recommendatLonsp and actions tarn in connection tbere wLth, for the period from 1953 through 1970, Board of Supervisors 26 March 200 1972 I am in asgree t with the comments of the Public Works Director on the rascaaasxadations of the 1971committee; any additional comments are as followss 1, The sidepath re anon of the committee represonts a desirable objective; the fMding of a sideth program must be evaluated in term of needs it other facilities and services (public works and other county agencies), 20 The inclusion of d reciation as now, set forth In airport financial statements prepared by the County Auditor-Controller,, is in line with accepted accim-0- principles, is propers, and should be cant 3. I disagree with the committee wndation that the mn sof airport operations (at Buchanan Field sna at any county airport developed in the future) be placed under the at of a special airport comisLssion, (a) Substantial progress was not made at Buchanan Field isatil its developpm�nt and operation were swede responsibilities of the Public Works Department (in 1961) although prior to that time there were dedicated efforts by an Airport Advisory . Committee and Ai rt ens S .to Make e the airport a fb snag faa litty; the direct al.igaxnt with the Public Works Department has made available as needed. ,through the ]Public Works Director, the gull nagement and technical expertise of many professional employees to support the re red specialized experience of the Airport Managere (b) Two plural bodies already concern themselves' with airport da�elo t and activities; one of these is the created Ai rt Land Use Coamoission and the other is the Airport Liaison Cosuaitteae; from these two bodies theme as"hould be forthcaasis<ag advisory input to serene both the interests of air trans- portation and the general peablia-nth direct aasam erly under the Public Works Department aauptd the Hoard of Superviasoras. Board of Supervisors 30Bch 20s. 1972 (c) Differences of o inion will to no .tetter how the rport is.. se the, g tat Lavolves control's v&i6 Waist be exercis edand aich� . frm ties$ to ta�ep will rega ata +desiralble� by few, of the parties :ub e4t to �-parrtic® ularly in casts the rubs'erre not obser*ed and enforcement :action east he tie In.tie of the airport, it should,bt noted that the operation is properly classified as an enterprise .function and as ; cfforea shoidd be made to fisc rates and derive r v rs faam the eii, t beneficiaries An is adequate .to toter es of operat on (Inclusivra of 4epre iation), Qercaaio Jl. los�s�ss�.in Ieea'a than substantial its used not be ret .»o critical as to require.. tip;: actIZ be a the air�rt efts of 96netal peilic benof it i ]:atsWe of pati . f els attributes Q it it .rec._ d that receipt of -the r report be acl leered, that it be referred to the Boardt Opelrations. Cowittee (Supervisors A. Mo Dias. and.J,,� EQ ,M®ria y) fear re tiev and report to ,the Boarde and that a copy. of ..it: be iilaGed on file in the Office atthe the County Clark. JP&Bbgg e�mcl p y PUBLIC WORKS DEPARTMENT CONTRA COSTA COUNTY DATE:. February 15, 1972 TO : J P. McBrten, County Administrator ' RFcFi,�Ff1 FROM: Victor W. Sauer, Public Works Director FEB 16 1972 yrs Costa County il�min(strator SUBJECT: Grand. Jury Raport In answer to your mono of February 4, 1972, we have prepared our c ents on the 1971 Contra Costa County Grand Jury Report. The 1971 Grand Jury recorrtwndation regarding handling of rete1pt books and cash receipts has been accomplished. The . recommendations that the Board of Supervisors plan for funding of a sidepath pro- gram i ta, of course, a policy matter for than Board to resolve. The remaining . I. recommendations concerning the Buchanan Field Airport have been il•sted below with. . our cents beside them. Committee Comonts and itecommndat i ons Pub l I c Works Department Comments 16 Recomnnd updating the Master 1. Based on the 1968 Master Pian Study by Piano Leigh Fisher Associates, a nationally recognized aviation consulting firm, a now Master Plan was prepared,ed, app roved by the Federal Aviation Administration, and subsequently adopted In November 1974 after a series of public hearings. 2. Buchanan Airport be imnagad on 2. The 16-hour period durang which the airm e 24-hour basis. port Is moaned coI n�ci des with the FAA Air Traffic Control Tower operatics. At the present titer little airport activity occurs during tete hours from It p.m. to 7 a.m.; however, runway lights are on and the airport is open to aircraft traf- fic on a 24-hour basis. Airport records Indicate that the question of airport security has not been a major problem tap to the present time although wQ would concur that it would be desirable to have the airport attended on a 24-hour basis4 The Sheriff includes the airport as a regular part of the patrol beat in this 3. Depreciation charges on Fade ra1 Commands regarding the preparation and Grants should be eliminated and format of audit reports and financial a true enterprise accounting statements. for the airport are matters system: should be adopted4 concerning the County Auditor who has respon.si b i l i ty for such reports, continued,... J. P, McBrien, County Administrator Grand Jury ftport February 15, 1972 Page 2 4, Recommendation that fuel sera 4. Leases with -fixed base operators grant vices be put out to bid and fuel servl6a privileges upon compliance limited to one operating firm with minimum capital improvement standards with hours of service specified, and have the advantage of affording each aviation service operator a ready source of potontigl customers for other aviation services. However, it may be 'possible to work out an agreement to provide more extended fuel service coverage with a single operator. The Airport Manager wi 1 i discuss this possibility with the fixed base operators whose consent would be regal red pursuaAt to existing lease sgr6e- anent�, - 5, Recommend the Board of Super 5, The organization and management of Buchanan visors place the Airport under field is a parogative of the Board of the management of a Special 5upervisorso airport cammission to super- vise Buchanan' Field and future airports. 1 and attachments theIncomingGrand J l ttee Attached i� my usual �r a a a►clt a to ury. a which also covers theme paints, Attachment . 4 i, OFFICE OF THE COUNTY ADMINISTRATOR CONTRA COSTA COQ Administration Building Martins°o California To: Board of Supervisors Date: March 1ls 1972 From: J. PQ McBriedli'� Subject: Report of Pl and County Admini ator Public Works CommIttee of 1971 Contra Costa County Grand Jury on County Planning Department The report of the Planning and..Public Works Committee of the. 1971 Contra Costa County Grand Jury on the. County Plavn�ng Depart- ment is a brief evaluation which is contained on pages 58 and 59 . of the Grand Jury' final report, A copy of the complete report of . the .committee L.ivattached hereto. It idll be .Doted that the committee assents that the Planning Department has s poor image in terns of public relations, that there exists an impression that planing personnel have an arbitrary attitude in dealinngg with the public,' that there is no established method for evaluatinIf plaming personnel as -to qualifications on a regular basis that such a procedure were initiated personnel causing problems for the department Wright well be eliminated.a that . the planning function is a sensitive area of government responsibility:e that there should be a reorganization of the. P1min Department® and that the Department requires stronger more capab a management if it is to function properlyo The Public Worcs and Planning Committee of the 1970 Contra Costa County Grand. Jury. commented on the Planning Department in about the same terms as the Planning and Public Works Committee of the .1971 Contra Costa County Grand Jury. In my opinion the following comseents. which I made in a memorandum report to the Board of Supervisors on February 26, 1971 are still applicable and still have .full validity: "It should be noted that the Plarni nnkg Department has service functions and that in connection therewith it should be responsive to the public; concerted efforts are made -to do so. It should be noted also0 howevere that the Planning Department is a control agency and that it -cannot c i ly with all individual requests and still fulfull its basic planning responsibilities to the publico It is likely that more sent planning controls will be mandated by statute in view of the current, and undoubtedly continuing; emphasis on Improved environment,, open spacep and ecology." a Board of Supervisors 2a Mph 210 1972 The committee statements about plannin personnel qualif icationa a and contimling evaluations related to theiav fail to take into account the stTingent class specifications and tion► process under which !Janjiningpersox l aaare rectuite.de thea use of the aasix monthaprobatie odm and review of perform in connection with "Lary J.ve is after 6 nthas after 1 year and 6 �mtheg, ofter 2 years a a�rathat and ;Iter 3 years and 6 months). It eight be that the probation period of 6 uaonths could be extended to 12 months in the case of -personnel so that a longer time for the a aluaation of perforr ce of um personnel Is available.® The advisabil f ty► of theprobation period extensionhas been referred to the Pla =ting Director and the Personal Director for comment taking into account factors such as the fuapact upon recruitment—anti the applicable policies of the Cir�.l Service Commission. It is recon nded that receipt of the mworandtn report be acknowledged, that it be referred to the Board Government Operatio=ns Committee (Supervisors A-a ME, Dias aaW .J. E. Moriarty) for review nand report to the Boards and that a copy of it be placed on file in the Office of the County Clark, eJPMcBsbgg encl. REPORT OF PLAMUNG -AND PUBLIC WORKS COMITTEE OF 1971 CONTRA COSTA COUNTY GRA JURY ON COUNTY PLANNING DEPART IT . We met with the Director of Planning, Mr. Anthony A. Dehaesus,, on two occasions and discussed at some length the various complaints we had recefvedg and also went into detail regarding his thinking in relation to personnel. We am of than opinion he is not close to the situation and is not aware of some of the problem of taxpayers which are causing poor public dations® hhowever, because of continuing citizens' coWlaints regarding this de art- menu we felt it necessary to make an ix�ten,ffiive check into de various criticisms received during the year. We talked at length with individualsv builders both large and small,, contractors and trade organizations re resenting: tbeese ,p�eople. Without exception they all seemed to feel there was a definite lack of public relations or understanding emmating . from the Planning Department. The impres- sion is definite that: on ' occasions an Arbitrary attitude is adopted by personnel when dealing with the public. We were advised that at present there is no established method of evaluating employees as to qualifications on a regular basis. If such a plan was initiated it might well eliminate some of the offending personnel that ars. causing ptoblems for the department. It is realized that plat ing iiaany area of goverment is one of the most sensitive agenciese and therefore requires sin extremely well qualified person to ran it smothly. In conclusi.on we reto=wnd a reorganization of the Planning Department which if it is to function properly must have stronger and more capable estap ]Note The above committee. report is set forth on pages 58 and 59 of the Final Report of the 1971 Contra Costa County Grand Jury. OFFICE OF THE COQ ADMIMSTSATOB CONTRA COSTA COUNTY Administration Building Martinez. Califorasia To: Board of Supervisors Date: March 219 1972 From: J® P® lcBried�.% Subject: Re ort of P1 and County Admini ator Public Works Committee of 1971 Contra Costa County Grandutry on County Planning Department The report of the Planning and .Public Works Committee of the 1971 Contra Costa County Grand Jury on the. County Planning Depart- ment is a brief evaluation which is contained onpages 58 and 59 of the Grand Jury final report. A copy of the complete report of . the committee is..attached hereto. It will benoted that the committee asserts that the Planning Department has a poor image in terms of public relationso that there existe an impression that pplanniing personnel have an arbitrary attitude in d",UDng with the public, that there is no established method for evalualtin� planning personnel as -to qualifications on a regular:basie.n Mi ;f,f such a procedure We're' Initiated personnel causing problems for the department aafght well be eliminated, that . the planning function is a sensitive area of government responsibility.,, that there should be a. reorganiz-ation of the. Pl Departments and that the Department requires stronger and more capab a max:agement if it is to function properly. The Public Works and PI ng Committee of the 1970 Contra Costa County Grand Jurycommented on the Planning Department in about' the same terms as the Planning and Public Works Committee of the .1971 Contra Costa County Grand Jury. Inmy opinion the following comments: which I ,Wade in a memorandumreport to the Board of Supervisors on February 269 1971 are still applicable and still have full validity': "It should be noted that, the Planning Department has service functions and that in connection therewith it should be responsive to the public; concerted efforts are made to do so. It should be noted also® however® that the Planning Department is a control agency and that it cannot comply with all individual requests and still fulfull its basic planning responsibilities to the publico It is likely that more stringent planning controls will be mandated by statute in view of the currents, and undoubtedly contitaaingg emphasis on Improved environment, open space® and ecology." w Board of Supervisors 2March 219 1972 The committee statements about planning�e rsonnel qualifications, and coat evaluations related to them, fail to tam into account the stringent class specifications and process under whish p1 ersonnel are recruited, the use of the six months probation peer , and revs of perfonoxa in connection with ltagry increments (after6 months, after 1 year and 6 months, zf ter 2 years and 6 ninths, and after 3 years and 6 caths)o It eight be that the probation period of 6 aaanthms Bald be extended to 12 months in the case ofAilzerLIE10'rmame personnel so that a longer time for the evaluation of of neer personnel is available® The advisability of the probation period extension has been referred to the Plowing Director and the Personnel Director for c=mmt taking into account factors such as the impact upon' recruitment—aW the applicable policies of the Civil Service Commission. It is recommended that receipt of the nemorandum report be acknowledged, that it be referred to the Board Government Operations Committee (Supervisors Aa H, Dias and J. Eo Moriarty) for review and report to the Poardp and that a ropg of it be placed on .file in the office of the County Clerka aJP3Sbgg encl. REPORT OF PLANNING AND PUBLIC WORKS C 'TTEE OF 1971 CONTRA COSTA COUNTY GRAND JURY ON COUNTY PLANNING DIEPAR'TMM We met with the. Director of Planning, Thr® AnthonyA. Dehaesus, on two occasions and discussed at some length the various ce�a�laints we had received® and also went into detail regarding his thixaking in relation to persomel. We are of the opinion he is not close to the situation and is not aware of some of the problems of taxpayers which are causing poor public relations.. However, because of continuing citizens' complaints regarding this depart- ment,, we felt it necessary to make an intensive check into the .various critics.stas received during the =small, Q We talked at length ,with individuals9 builders: both large contractors and trade organizations representing these people. Without exception they all seemed to feel there was ae•definite lacy of public relations or understanding emanating from the Planning Departments The impres- sion is definite that on many occasions aan arbitrary attitude is adopted by personnel when deaf with the public. We were advised that at present there is no established method of evaluating employees as to qualifications on a regular basis. If such a plan was initiated it might well eliminate some of the offending personnel that are causing problems for the department® It is realized that pl.aanaing in any area of goverment is one of the most sensitive ager ciesp and therefore requires an extremely well edified person to run it smoothly. In conclusion we recommud a reorganization of the Planning Department which if it is to functions properly must have stronger and more capable management. Dote The above committee report is set forth on pages 58 and 59 of the Final Report of the 1971 Contra Costa County Grand. Jury. r; OFFICE OF THE COUNTY ADMMSTRATOR COQ COSTA COQ Acbdulstration Building Martinemp California Toz Board of Supervisors Date: Iarch 21, . 1972 From A J. Po Mcftietr, Subjects g Reppoort of Plannine County AdminisvrAtor Public Works C tree of 1971 Contri Costa County Grand Jur_ t on County Pla ing Department The report of the Planning and.Public Works 'Committee of the 1971 Contra Costa County Grand 4ury on the- County Pla=4ng Depart- ment is a brief evaluation which is contained on pages 58 and 59 of the Grand Jura final report A copy of the ccs ete report of , the committee is.,atta&ed hereto. It will be issued that the committee asserts that the Planning Department has a poor image iu terms of' blic relationsp that there exists an impression haat l ing,personnel have an arbitrary attitude in deali� with the pub icg that there is no established method for evaluating planning personnel as to qualifications on a regular .basis.® .that ;if such a procedure we're initiated personnel causing problems for the department might well be elimiamateds that; the planning function is a sensitive area ofgover nt rc�spo sibili-ty.sk that there should be a reorga ni.zation of the. Pl Departmentp and that the Deparitiment requires stronger and more cap managementif it is to function properly, The Public Works and Pl ag Committee of the 1970 Contra Costa County Grand Jury. counted an the Planning Department in about the saw term as the Planning imd Public.- Works Committee of the .1971 Contra Costa County Grand Jury. In awry o inion the following comments which I made in a memar report' to the Board of Supervisors on' February 269 1971 are still applicable and still have full validitps "It; should be noted that the Plan Department has service functions and that In co clon ttaerewith it should be respoE.aive to the public; concerted efforts are made to do so® It should be noted also' howevers that the Planning artmentis a control agency and that it camnot comply with all individual requests and still fulfull its basic planning responsibilities to the public6 It is likely that amore stri�ntggent p controls will be ted by statute in view of the current9 and undoubtedly continufng� emphhasi6 on- Improved n iaa�proved environment, open spaces sad ecology®" 1. Board of Supervisors 2® March 21, 1972 The committee statements about plamning persomel qualifications, and continuing evaluations related to them, fail to take into account the stringent class specifications and exaffiiaation process under which lanning persom al are recruited, the use of the six months probation perfod, and review of performance in connection with walate�2�ears saris 6 mommtkths �gt�r 3r 1 dear aaxi 6 months, It -might beythat the probation period of 6 moths could be exrs and 6 tended to 12 months in the case of planning personnel so that a longer time for the evaluation of the performanea of new personnel is available. The advisability of the probation period extension has been referred to the Planning Director and the Personnel Director for com®ent taking into accotmt factors such as the C t u cruitmenit abd the applicable policies of the Service It is re c d that receipt of the memorandtu report be acknowledged, that it be referred to the Board Coverument Operations Committee (Supervisors A® M, Dias and J. E. Moriarty) for review and report to the Board, and that a copy: of it be placed on file In the Office of the County Clerk. JPMcBsbgg encl. 0 REPORT OF FLAMING AND PUBLIC WORKS COMNITTEE OF 1971 CONTRA COSTA COUNTY GRAND JURY ON COUNTY PLANNING DEPART MT We met with the Director of Planning, loco Anthony A. Dehaesusg on two occasions and discussed at some length the various emplaints we had receivedg and also went into detail re rding his thi41kp g in relation to personnel. We are of the opinion he is not close to the situation and is not aware of some of the problems of taxpayers which are causing poor public relations. Howeverg because of continuing citizens' complaints regarding this depart mentg we felt it necessary to make an intensive check into the various criticisms received during the year. We talked at length with individuals, builders, both large and small, contractors and trade organizations representing these people. Without exception they all seemed to feel there was a definite lack of public relations or understanding Ming from the Planning Department. The impres- sion is definite that on many occasions an arbitrary attitude is adopted by personnel when dealing with the publico We were advised that at present there is no established method of evaluating employees as to qualifications on a regular basis. If such a plan was initiated it might well eliminate some of the offending personnel that are causing problems for the department. It is realized that plaxmning in any area of government is one of the most sensitive agenciesg and therefore requires an extremely well qualified persona to run it smoothly® In conclusion we recommend a reorganization of the Planning Department which if it is to function properly must have stronger and more capable management. Note The above committee report is set forth on pages 58 and 59 of the Final Report of the D.971 Contra Costa County Grand Jury. OFFICE OF THE COUNTY ADMINISTRATOR CONTRA COSTA COUNTY Administration Building Martine§ California To: Board of Supervisors Date* Match -21V 1972 From: J. Po McBrie� �'�`� Subject: Re ort of Planningand County Admini ator M92ic Works CommLttee of 1971 Contra Costa County Grand Jury on County Planing Uepartmaent The report of the Planning and-Public. Works Committee of the. 1971 Contra Costa Coum::ty Grand Jury on the County Planming Depart- ment is a brief evaluation which is contained an ppagages 58 and 59 of the Grand Jury final report® A copy of the co�Bete report of the committee is..attached hereto® It will be tooted that the committee asserts that the Planning Department has a'- poor image in terms of public relationsg that there exists an impression that plug personnel have an arbitraryattitude in deAling with the public,. that there is no established method for evaluating planning personnel as to a�.ifications on a regu4 .or ,,basis.s that ;if such a procedure erre initiated personnel causing problems for the department might well be elg that . the planning function is a sensitive area of government responsibility.9 that there should be a reorganization of the Plamin Department® and that the Department requires stronger and more capable management if it is to function properly. .The Public Works and Planning Committee of the 1970 Contra Costa County Grand Atrir. commented on the Planning Department in about the same terms as the Planning and Public Works Committee of the 1971 Contra Costa County Grand Jaaryo In my opinion the follo�rin8 coaments� which I made in a memoranda re rt to the Board of Supervisors 'on February 26, 1971 are still applicable and still have full validity: "It should be noted that the Planning Department has service functions and that in connection therewith it should be responsive to the public; concerted efforts are made to do son It should be noted alsop however® that the Planning Department is a control agency and that it carrot c ly with all individual requests and still fulfull its basic planning responsibilities to the publico It is likely that more stringent planning controls will be mmndated by statute in view of the current,, and undoubtedly continuinga emphasis on improved environment, open space® and ecology." Board of Supervisors 2n March 218 7.972 The committee: statements about planning personnel qualificationso and contiartti ng evaluatio= related to tbesap fall to take into account the stringent class specifications and +sxamination, process under which planning personnel area reecruiteed9 the use of the six months probation per od$ and review ew of performance In connection with ftIarq J===.Mts (after 6 months after 1 year end b monthso rafter 2 years and 6 months0 and ter -3 years and 6 months)o It `might be that the probation period Of 6 months could be extended to 12 months in the cases ofp�l persorml so that a 1o%$er time for the evaluation of the peerfo of nem personnel is available. The advisability of the probation periost extension has been referred to the Platnaing Director and the Pesrsonakel Director for comment taking intro account factors such as the impact upon recrui t�-and the applicable policies of the Civil Service Commission. It is recmemeWed that rezeeipt of the randum report be acknowledged, that it be referred to the Board Government Operations Committee (Supervisors A. M., Dias &W J. T. Moriarty) for review and report to the Board® and that a copy of it be paced on file in the Office of the Country Clark. JPMtBtbgg encl. REPORT or PLANNING AND PUBLIC WORKS COMITTEE OF 1971 CONTRA COSTA COUNTY GRAND JURY ON CDUM PLANNING DEPARTMENT ENT We met with the Director of Planning, lair. Anthony Am Dehaesus, on two occasions and discussed at some lengthth+e various complaints we had received, and also went into detail re rding his thinking in relation to personnel. We are of the opi on he is not close to the situation and is not aware of some of the problems of taxpayers which are causing poor public relations. However, . because of continuing citizens' complaints regarding this depart- ments, e art-ment, was felt it'necessary to make an intensive check into the various criticisms received du the year. . We talked at length with i gadividuals p bui.lders�, bo aergae and X11, contractors and trade organizations re resenting these people Without exception they all seemed to feel there was a definite lack of public relations or understanding emanating from the Planning Department0 The impres- sion is definite that on many occasions an arbitrary attitude is adopted by personnel when dealing with the public. We were advised that at piesent there is no established method of evaeluati plovaes as to qu.].ificcst�.onsa on a regular basin. If such aplan was initiated it might well eliminate some of the offending p�gsonnel that are causie problems for the department.. It is realized that pl ng in any area of government is one of the most sensitive agencies, andbt erefore requires an extremely well qualified person to rtna it smoothly. In conclusion we recommend ae .reorganization of the Planning Department which if it is to function properly .must have stronger and more capable management. Nota The abovettoe 'report is sot forth on pages 58 and 59 of the Final Report of the 1971 Contra Costae County Grand Jury. OFFICE OF THE COUNTY ADMINISTRATOR CONTRA COSTA COUNTY Administration Building Martinexo California To: Board of Supervisors Date: March 21® 1972 From: J. P® McBried�p.% .rte` Subject: Report of Pl and County Admini .tor Public Works C ttee of 1971 Contra Costa County Grand Jury on County Planning Department The report of the Planning and .Public Works Committee of the 1971 Contra Costa Counttpp Grand Jury on the.County Planning Depart- went is a brief evalZion which is contained on pages 58 and 59 of the Grand Jury final report. A copy of the complete report of . the committed is. attached hereto. It will be �tioted that the committee asserts that the Planning Department has $ poor image in teres of 00116 relations, that there exists an impression that pplaxaii_ g personnel have an arbitrary attitude in dealing with the public9 that there is no established method for evaluating planning personnel as to Qualifications on a regular basis.® .that ; f such a procedure were initiated personnel causing problems for the department.might well be eliminated., that , the planning function is a sensitive area of gowerrmsent responsibil. ty, that there should be a reorganization of the Pl Department® and that the Department requires stronger and .+sore cepa_ a management if it is to function properly. The Public Works and Planning Committee .9f the 1970 Contra Costa County Grand Jury. commented on the Planning Department in about the same terms as the Planning and Public Works Committee of the 1971 Contra Costa County Grand Jury. In my o� inion the following commutt which I made in a memorandum re rt to the Board of Supervisors on. February 26, 1971 are still applicable and still have .full validity: 10It should be noted that the Plaxnai Department has service functions and that in connection therewith it should be responsive to the public; concerted efforts are made to do so. It should be noted also® however, that the Planning Department is a control agency and that it cannot comply with all individual requests and still fulfull its basic plannina responsibilities to the publicm It is likely that more stri -V__nt planning controls will be mandated by statute in view of this current, and undoubtedly continuings, emphasis on improved environments, open space, and ecology." Board of Supervisors 2 March 219 1972 The committee statemants about planningnersonnel qualifications and continuing evaluations related to themfl fail to take into account the stringent class specifications and e.-.-ination process under which glaimiagpersonnel are recruited9 the use of the six asnaths probation i;;Rodg and review of performance in connection with salary incrementsafter 6 wonthsfl after 1 year and 6 monthse 4fter 2 pears and I mmthsq and after 3 years and 6 months) It `might be that'the probation period of 6 months could be eXtGuded to 12 months in the case of pplaning personnel so that a longer time for the evaluation of tithe perfo of new Personnel is available. The advisability of the probation period extension has been referred to the Planning Director and the Personnel Director for comment taking into account factors such as the iampact upon recruitment—and the applicable policies of the Civil Service Commission, It is recammeanded that receipt of the nemoravAn report be acknowledged, that it be referred to the Board GoverOwnt operations Committee (Supervisors Am & Dias and Jo E. Moriarty for review and report to the Board, and that a copy of it be placed on file in the office Of the Covaty Clerk, JPT cBsbgg encl. REPORT OF PLANNING AND PUBLIC WORKS COMMITTEE OF 1971 CONTRA COSTA COUNTY GRAND JURY ON COUNTY PLANNING DEPARTMENT We met with the Director of Planning,, Mr. Anthony A. Dehaesus,, on two occasions and discussed at some length the various complaints we had received,, and also went into detail re riling his thinking in relation to personnel. We are of the opinion he is not close to the situation and is not aware of some of the problems of taxpayers which are causing poor public relations. However,, because of continuing citizens' complaints regarding this depart- ment,, we felt it necessary to make an intensive check into the various criticisms received Buri the year. We -talked at length with individuals,, builders,, both large and small,, contractors and trade organizations re resenting these people. Without exception they all seemed to fee there was a definite lack of public relations or understanding emanating from the Planning Department. The impres- sion is definite that on many occasions an arbitrary attitude is adopted by personnel when dealing with the public. We were advised that at present there is no established method of evaluating employees as to qualifications on a regular basis. If such a plan was initiated it might well eliminate some of the offending personnel that are causing problems for the department. It is realized that planning in any area of government is one of the most sensitive agencies,, and therefore requires an extremely well qualified person to run it smoothly. In conclusion we recommend a reorganization of the Planning Department which if it is to function properly must have stronger and more capable management. Note The above committee report is set forth on pages 58 and 59 of the Final Report of the 1971 Contra Costa County Grand Jury. OFFICE .OF THE COUNTY ADMINISTRATOR CONTRA COSTA COUNTY Administration Building Martinewp California To: Board of Supervisors Date: Match 21® 1972 From: J. P. McBrief9a, i►t- •.a.� Subject: Re rt of P1 and County Ad�minior Public Works ConsJttee of 1971 Contra Costa County Grand Jury on County Planning Department The report of the Planing and .Public Works Committee of the 1971 Contra Costa County Grand Jury on the County Planning Depart- ment is a brief evaluation which is contained on pages 58 and 59 of the Grund Jury final report. A copy of the ces�►x�fete report of the committee is. attached hereto, It will .be noted that the committee asserts that the Planning Department has a'-poor Image in terms of public relations, that there exists stn impression that pplannninng pe=sonnet have an arbitrary .attitude in dealing with the public, that there is no established method for evaluating planning personnel as to qualifications on a regutl..ar .basis,s, that cif such a procedure were LuLtiated perso�l causing problems for the depArtt alight well be eliminated, that the planning function is a sensitive area of goverment responw$bilf.ty.8. that there should be d reorganization of the Plannitm Department, and that the Department requires stronger and fire capable max>ageatent l if it is to- fu ton properly. The Public Works and Planning Com mittee of the '1970 Contra Costa County Grand Jury. commented on the Planning Department in about the same terms as the Planning and Public- Works Committee of the 1971 Contra Costa County Grand Jury. In my opinion the following comments which I made in A a randuim report to the Board of Supervisors on. February 269 1971 are still applicable and still have full validity: "It should be noted that the Planning Department has service functions and that in connection therewith it should be rerpousive to the public= concerted efforts are made to do so. It should be noted also@ however$, that the Planning Department is a control agency and that it coot comply with all individual requests and still fulfull its is planing responsibilities to the public. It is likely that more strinng,gent planning controls will be mandated by statute in view of the currents, and undoubtedly continuing, emphasis on improved environment, open spaces, and ecology." Board of Supervisors 2® March 218 1972 The* committee statements about pla;ming personnel qualifications9 and couti=Ang evaluations related to them, fail to take into account the stringent class specifications and examination process under wnhicAh platting personnel are recruited, the use of the six months probation periods and review of performance in connection with &qlary increment s i af ter 6 months after 1 year and 6 amonths a zwfter 2 years and months, and e1ter 3 years and 6 months). It `might be that the probation period of 6 ,months could be extended to 12 months in the case o£ lanniz% personnel so that a longer a time for the valuation of the performance of new personnel is available. The advisability of the probation period extension has been referred to the Plkming Director and the Personnel Director for comment taking into account factors such as the impact upon recruitment—and the applicable policies of the Civil Service Commission. It is recasuenended that receipt of the memorandum report be acknowledged, that it be referred to the Board Government Operations Committee (Supervisors A. H, Dias and J. E. Moriarty for review and report to the BoardB and that a copy of it be placed on file in the Office of the County Clerk, JPMcB:bgg encl. REPORT OF PLANNING AND PUBLIC WORKS MMITTEE OF 1971 CONTRA COSTA COUNTY GRAND JURY ON COUNTY PLANNING DEPARTMENT We met with the Director of Planning, Mr. Anthony A. Dehaesus, an two occasions and discussed at some length the variouslaints we had received, and also went into detail regarding his thing in relation to personnel. We are of the opinion he is not close to the situation and is not aware of some of the problems of taxpayers which are causing poor public relations. However, because of continuing citizens® complaints regarding thisde art- ment, we felt it necessary to make an intensive check into the various criticisms received =tnfarg: thyear. We talked at length with individuals, buildersp iuW small, contractors and trade organizations representing these people. Without exception they all seemed to feel there was a definite lack of public relations or mderstanding emanating from the Planning Department. The impres- sion is definite that on many occasions an arbitrary attitude is adopted by personnel when dealing with the public® We were advised that at present there is no established method of evaluatingemployees as to qualifications on a regular basis. If such a plan was initiated it might well eliminate some of the offending personnel that are causing problems for the departments It is realized that plarea of goverment is one of the most sensitive agencies, therefore requires an extremely well qualified person to run it smoothly. In conclusion we recommend a reorganization of the Planning Department which if it is to function properly must have stronger and more capable managemento Note The above committee report is set forth on pages 58 and 59 of the Final Report of the 1971 Contra Costa County Grand Jury. r 4 OFFICE OF THE COUNTY ADMINISTRATOR CONTRA COSTA COUNTY Administration Building Martinewo California To: Board of Supervisors Date: March 210 1972 From: J. Pe McBri.erC • ` Subject: Report of P1 and County Admini ,,tor Public Works ttee . of 1971 Contra Costa County Grand Jury on County Plarming Department The report of the Plaasning and Public Works Committee of the 1971 Centra Costa Couaatq Grand Jury on the:County Planning Depart- ment is a brief evaluation which is contained on ppaagges 5S and 59 of the Grand Jury fires]. report. A copy of the coimplete report 'Of . the committee in(attached hereto. It will be .*soted that the committee asserts that the Planning Department has a poor image in terms of public relations, that there exists an impression th;�bllanning personnel have an arbitrary attitude in dealing with the ic® that there is no established method for evaluating planning personnel as 'to lifications on a regular;basis.,, -.treat ;if such a procedure were initiated personnel causiffig pro ,leoms .for the department might well be eliminated,, that . the planning function is a sensitive area of government res., ibili.tye that there should be a reorganization of the. Pl Departments, and that the =top tment requires stronger and more e ,,man ement if it is to properly, The Public Works and Planning Committee of the 1970 Contra Costa County Grand Jury. commented on the Planning Department in about the same terms as the Planning and Publ�,c Works Committee of the .1971 Contra Costa Coup Grand Jury.. Yes my oppinion the folloving comments: which I made in a memorandum report to the Board of Supervisors an February 269 1971 are still applicable and still have .fuil validity-: "It should be noted that the Planning Department has service functions and that in connection therewith it should be responsive to the public; concerted efforts are made to do so. It should be noted also,, however,, that the Plaming Department, is a control agency and that it cannot comply with all individual requests and still fulfull its basic plam2ing responsibilities to the publico It is likely that more stringent planning controls will be mandated by statute in view of the evxrentp and undoubtedly coutinuing9 emphasis on improved environments, open space® and ecology." Board of Supervisors 2a .. March 21, 1972 The coamnittee statements about planning personnel qualifications, and continuing evaluations related to they,, fail to take into account the stringent class specifications and examination process under which rsonnel are recruited, the use of the six months probation pe , and review of performance in connection with salary incrementsafter 6 months, after 1 year and 6 months after 2 years and months$ and after 3 pears and 6 months). It 'might be that the probation period of 6 mouths could be extended to 12 months in the case of planning personnel so that a 1 er time for the evaluation .of the performance of new personnel is available. The advisability of the probation period extension has been referred to the Planning Director and the Personnel Director for rom ent taking into account factors such as the impact upon recruitment—and the applicable policies of the Civil Service Commission. It is ended that receipt of the memorandum, report be acknowledged, that it be referred to the Board Govesrmmnt Operations Committee (Supervisors Ae M9 Dias and J. E. Moriarty) for review and report to the Board, and that a copy of it be placed on file in the Office of the County Clerk. JPMcBabgg encl. REPORT OF PLANNING AND PUBLIC WORKS COMMITTEE OF 1971 CODA COSTA COUNTY GRAND JURY ON COUNTY PLANNING DEPARTMENT We seat with the Director of Plarning9 Mr. Ant=OUhon A. Dehaesus9 on two occasions and discussed at some length the slaints we had receiveds and also went into detail re rding his thic�� in relation to personnel. We are of the opinion he is not close to the situation and is not aware of some of the problems of taxpayers which are causing poor public relations. However, because of continuing citizens' complaints regarding this depart" mento we felt it necessary to make an intensive check into the various criticisms received during the year. We talked at length with individuals, builders, both large and small, contractors and trade organizations representing these people. Without exception they all seemed to feel there was a definite lack of public relations or understanding emanating from the Planning Department. The impres- sion is definite that on many occasions an arbitrary attitude is adopted by personnel when dealing with the public. We were advised that at present there is no established method of evaluating employees as to qualifications on a regular basis. If such a plan was initiated it might well eliminate some of the offending personnel that are causing problems for the department. It is realized that planning in area of govermment is one of the most sensitive agencies, and therefore requires an extremely well qualified person to rums it smoothly. In conclusion we recommend a reorganization of the Planning Department which if it is to function properly Heist have stronger and more capable management. Note The above committee report is set forth on pages 58 and 59 of the Final Report of the 1971 Contra Costa County Grand Jury. PROBATION CO� II:I'TLE Alymer' :.B. Hussey, Chairman Leo Armstrong William .C. Beck Mrs. Berni ce Lasell G Stewart Paul The objective of Contra Costa Cou- Fy` s probation system-_ should be the rehabilitation and return to society of the optimum number of juveniles and adults whose problems and of f en ses: have brought them under the supervision and. control of that system. Comments or recommendations made herein are the result of that. point of .view. We believe that everyone, at whatever level of county or city government they may be-working, who has any relationship to the problems of delinquency and crime should accept this objective as the final goal of their own actions . Anyone unfamiliar with this subject might assume that rehabilitation is the exclusive concern of the County Probation Officer and his staff. It is not so! A great r eny,. other people are involved such as : The Board of Supervisors , . The ter. Superior Court Judo The Juvenile Justice and Delinquency Pr.evenrion Commissions , The Social Service Department, The Sheriff' s Department',' The Justice and municipal Courss. The City Police Departments ; The 800- licensed Foster .Homes J.r, the county,. The fifty or more private and vo=lunteer organizations , both within and outside the.. county, who offer rehabilitation , > treatment and support services, Also the Federal and State governments which offer programs and support services to the counties . Combating delinquency. and crime with reh��bilit,at on Probation ComnJL t:tee programs is a very complex problem involving. many persons and units of government who are relatively independent of eac.h.. other.: Success in this. effort requires the constructive and wholehearted understanding and cooperation of all. .To the extent that anyone takes expedient action based upon a narrow personal point of view, the efforts of others will be minimized, even nullified, At 'the risk of our seeming naive to expect so many people to voluntarily integrate their individual efforts effec- tively, we unequivocally state that itis the ..county' s only hope of real and significant progress, in the rehabilitation of its delinquents and criminals . It is also the only hope for contr'ol- ling the rapidly rising cost of such offenses in the county. We will refer back to these ideas at various times later in this report.- One further comment is necessary to make clear the . manner, in which the Probation Committee approached its .investiga- tory responsibilities, We did not visit every facility nor inter- view, every possible person or group. that is involved in probation. matters . We chose areas of probation activity in which there might be the greatest need for, or opportunity to, effect improvement. PROBATION FACILITIES Group Homes _There are five group homes for boys; four of which. are at, Las Trampas Youth .Village. located in Bollinger Canyon .at 36 Holly Court, San' Ramon, and the fifth is the Walnut Creek Group. ... Home at 2870 Kinney .Drive. Group :homes for girls are maintained Probation Committee 1 by a private agency, Youth Homes, Inc . The intended purpose is to furnish a '''home-like" 'atmos- phere in which six boys .live `under the care of a: "house mother" and the supervision of a- Probation -D,epaxtment staff memb.er.: The boys attend local community schools .except at Las Trampas Village (Bollinger. Canyon) where some schooling is. provided on; the`.grounds. when needed for individual boys. Las Trampas Youth Village (Bollinger Canyon) The San Ramon address of. this group of homes is mislead- ng. They are located deep in Bollinger Canyon;= about e:ight' miles northwest of the town of San Ramon on a former, Nike missile site which the county is in-the process of acquiring_ from, the federal government. The site involves some eleven acres of land and other buildings. The five houses now used as group .homes ;were the residences of missile crew officers . We are told the other build- ings on the .site .are not in usable condition and:- that the cost to make them so cannot. be justified. We are also told that the _ original concept in 1966, when the site was taken over, was to create another Boys ' Ranch similar to the present one at Byron. - Thisappearsto be an extremely remote possibility at this time. This Grand Jury, . as were preceding. Grand Juries, is convinced that their operation is: far .too costly to justify their indefinite continuance. Based on budgets for. the period ending June 30 , 1971 and the stated. population capacity of each: facility, the; cost-- of operating. this facility `compared: to others=. is as follows: 1 Probation Committee 1 Bollinger =Canyon - $1,_200 ,,per month per boy Walnut Creek Home - 760 If Byron Boys ' Ranch 682 Juvenile Hail - 786"'11.1 if if If *Based= on actual average daily population of 161 during 1970. Stated capacity is 85. These figures speak for themselves We recommend that .,plans bemade now to phase out. the Bollinger Canyon homes as early as possible and to replace them with equal or better .homes. where the boys can live and attend school in ,a normal community rather than in isolation.. We make no judgment on the Board of Supervisor ' s origi rial decision to acquire the missile site. That is history. The land and buildings are said to have a value approximating $90,000 .00. Some use by the county was necessary to start the acquisition process and the use of the cottages .as group homes was the most attractive idea at the time. But this use':has �been con-- tinued far too long with, apparently, little .effort made to find another. Again, let us look at the economics of the situation. Assuming the .,excess cost to be $400.00 ,per;.month per. boy (a figure justified by the cost comparisons above) , our annual excess cost- is ostis 400 x 24(boys) x 12 (months)=$115 ,200.00. Thus, .the excess costs appear to exceed the value of the property each year of operation:. The need' to .eliminate this budget drain and taxpayer burden is cr.itical . and corrective action, ought to be started at once. The physical appearance of the cottages and'' grounds were unattractive. Uncut grass and weeds were everywhere, - It was Probation Committee obvious that the"'maintenance of this property,' is carried on barely above the level of neglect. If we are trying to give the . 01 boys, a home--like atmosphere, we should also give them home-like .work assignments . There is no logical reason why each" boy should not. have some home duty or, duties to perform, daily, 'inc"lu:di:ng" grass., cutting- a:nd ..weed pulling. A summer. time vege=tabae• garden-- would provide fresh food. and a healthy, constructivetherapyfor then, Walnut Creek Group Home Except forits location a'nd lower cost per boy, thus home is subject. :to -about the same critical comment as .the -Bollinger Canyon homes.. The home is located in an acceptable neighborhood of private. homes. While the cornittee did not interview- any of the neighbors, there is reason to believe that is- is " generally accepted . by them. However, this does not mean that 'the. good will of the. neighbors is assured on a continuing basis unless the home is maintained in keeping with the standards of the neighborhood, or if .the. boys ' conduct is not properly controlled. Whether or not a home.-like atmosphere .exists in this house is open to some question in view of the dilapidated- condition of almost every, piece of furniture in it and the deplorable condi- tion of the rear yard. When the house was visited " in late Marc'-'I, the rear yard was a jungle .of high grass and weeds and defaced by" the presence of a collapsed plastic wading-. or swimming pool 'and general disarray. While a- system of reward's for good conduct and penalties Probation Committee for. poor conduct was in use., there was no apparent program of assigning specific daily chores, around the house to each boy. Here, again, an opportunity for healthy work therapy .and responsi- bility training is being missed.. It was mentioned to the .committee by the home. supervisors 'tha't there had been some unfavorable remarks made by neighbors against having a, car parked on the street all day bearing the county seal identification. The presence of the- car raises ques- tions by the neighbors '- friends who come to call and•, this stamps . the group home as something abnormal in the community. We recom- mend that some way be found to overcome this factor, which is an embarrassment to.,the. boys as well, by perhaps providing a means of covering the county seal while the car must be- parked there. or finding a nearby vacant garage in which it may be stored during the -day. General• Comment on Group Homes The Group Home 'idea is to place delinquent boys ;who do not need the tighter controls of Juvenile Hall in a home-like atmosphere approaching that of a real home. - We seriously question whether this purpose is being. achieved. First, there are no "parents" , such as a married couple would represent., in the home. The house mother is present 24 ` hours daily with minimum authority while the home supervisor . who carries the maximum authority is present normally only eight hours . Second, the house mother and supervisor are unrelated- family-wise and their supervisor-subordinate relationship .is far from being representative of real parents or even foster parents... Probation Committee This. fact is not lost on `the boys . The atmosphere at. the homes is probably little different from that in the public .schools they — attend hey -attend during the day - constant supervision without. the precept and example of marital and filial love.. They are living a system- at zed, life., not a family one. This is not the fault of either the, house :pothers; or home supervisors. They are all sincere and dedicated people who are filled with compassionate concern for delinquent-.youths . We I respect- them for .it. and -commend their efforts . It is the. inherent weaknesses of the basic idea which cause it to fall short in the effort .to give these boys a .true home-.like atmos;pher.e. .' We will have more..- to say about this when- we discuss the use or non-use of foster- homes. Bo_ys_' . Ranch at Byron This is a minimum security facility of good quality with a. capable staff. Its stated capacity is 65 . The Probation. Depart- ment reports an average daily population of 60.6 during 1970. Because of its superior quality it would seem desirable to .keep it operating at. full capacity, or somewhat above, in view of the extreme overcrowding at. Juvenile Hall. The principal disadvantage of this. facility is its remote location away from the county' s 'maj_or centers of population. Much . time and money is spent in traveling between the Ranch and" Martinez and the western, sections of the county. Furthermore,. the distance and- lack of; public transportation creates a major obstacle forsome families wishing to visit their sons-. Equally serious is the transportation problem for `those boys who work. pant of the. week and f Probation Committee serve time at the Ranch the balance of the week. Most- of the available work is in the western county area. Since work/furlough programs are increasing as 'a produc- tive, means of rehabilitation, we believe that another facility similar to Boys ' Ranch is needed in the western side of the 'county. The term "ranch" is, a misnomer , suggesting wide open spaces ,. and.- one may wonder where- such land is to be found in the' west side. It is the nature of the facility that is important; not its -geographical scope. At .Boys ' Ranch, the boys_ a-re given specific work assign- ments in addition to their schooling, counseling and recreation. They mow lawns, weed and trim, and do other maintenance work with TR their abilities . This is in sharp contrast to the lack of such assignments at the group homes . Juvenile Hall-Martinez Section 851 of the Welfare and Institutions Code provides : "The juvenile hall. shall not be in, . or connected with, any jail or prison, and shall not be deemed to be nor be treated as a penal institution. . It shall be conducted in all respects as nearly like a home as possible." Emphasis ours Contra Costa County' s Juvenile Hall falls so far short of provid- ing a home-like atmosphere and is built and operated so much like a jail, that we .can only consider it to be in complete violation of the Code. This. facility was designed to .house 85 persons when built in 1950. During the year 1970, it had an average daily population of 161, 189% of design capacity. The highest . . Probation Committee population occurred in February 1970 at an average -of 210 .which is 205% of intended capacity. The crowding is so great that three boys (or girls in the girls ' wing). sleep in a room (cell). intended for one. Since the rooms are too small to hold three cots, one boy must .s.leep on the floor, his mattress.b eing stored under one of the cots during the day. The vent-ilation .and .heating are poor and,, as at the group homes, the maintenanceisat a low- level. As a result, conditions in the boys ' section. border on .the inhuman. _ Committee members .visiting this facility for the first time felt ashamed and embarrassed. The condition has been reported in numerous Grand Jury reports in recent years so no pur- pose will be served by repeating the sorry details beyond what ha,s. been said above. Suffice it to say that locking a boy into one of these cells is not a first step toward his rehabilitation; it is . more likely -to be a step toward more serious offenses against society in the future. Conditions in the girls ' section of the Hall are not materially better. The Girls ' Residential ,Treatmen,t Center, which is the third section of Juvenile Hall, stands in marked contrast to the . other two. sections. The space occupied was completely remodeled and renovated in ,1969 . It is clean, well lighted, properly -venti- lated and tastefully decorated. The, program in this Center pro- vides formal schooling, training in homemaking, counseling, preparation for employment, free-time activities and family involvement. This> is' ,the :most constructive effort toward true i Probation Committee rehabilitation that the Coirunittee has seen in all of -its -institu- tional visits. It was shocked, therefore, to read the following comment in the County Administrator ' s 1971-72 budget submission to the Board of Supervisors referring to Juvenile ' Hall: "Some- relief from-the constantly :overcrowded facilit-ies has been gained thus year by reduc ng the Girls ' Treatment Center .-P.r.ograra` and using" the vacated rooms `-for detention -of delinquent, girls.." This is, not progress; it is retrogression: With regard to new commitments to. Juvenile .Hall_, the Probation Committee is unanimously- and firmly 'of the opinion' that boys taken into the Hall for the first. time "who have not Yet been adjudged delinquent must not, under any circumstances., be placed in a cell with boys who have been so adjudged- A boy may have shown some delinquent tendency, but until he is . legally declared delinquent, no contact with a delinquent boy should be permitted. Delinquency, in .a sense., is a disease which spreads rapidly through personal associations . On September 26 , 1971, there were 81 delinquent boys and 49 delinquent girls , a total, of 130, in Juvenile- Hall. This is. a gratifying decrease from the peak population of February 1970, girt it is still 45 above the Hall' s design capacity. If new programs are instituted and actions taken, fully utilizing existing programs .. including foster homes , the overcrowding of the Hall can be eliminated. We recommend- that no boy or girl be• detained -at Juvenile Hall longer than 21 days. This' should be adequate time in which to process -the child' s case and place him or her in one of the Probation Committee programs outside Juvenile Hall. Of the. 81 boys -in the Hall on September 26th, 21, or 25%, had been there in excess of' 21 days . Of the 49 girls being detained, 24, or 50%, had been there over 21 days . Two boys had 'been. there 151 and 168 days , and two `.g,,ir:ls were there 110 and 117 days- respectively. Admittedly these were. difficult cases to place. Nevertheless , we are convinced that if. all . agencies .involved within the county were working together as closely as they should, these cases could have been disposed of in much less than five months . The Probation Department - General Organizationally the' Department seems -. to be well set up and staffed with capable and dedicated people. 'While we found some differences of opinion between line and staff personnel and between management and union as to policy, operations and programs , we found no evidence that these differences lessened anyone ' s cooperation or dedication. Through the medium of branch offices, ._, the Department brings it-s services into the various population centers of the county. We- feel that the hours of a probation officer must be flexible; it is not an- 8-5 job and the Probation Department should , not close down completely at 5 :00 p.m. Problems are not limited to an 8-5 period. , Services should meet the needs of the people. The committee' s greatest concern is that the Department is not adequately staffed to fulfill its purposes. Probation officers are overburdened. w.ith .cases and investigations. It is patently obvious that if there is to be rehabilitation of offenders , the probation officers must have adequate time to . devote to each Probation Committee case. The nur ber of i..nvectio Zt:ions t'he5- are asked- to perform should not deny them that time., The work load standards set .by the County Administrator are as follows : Investig.at:i.6ns Cases under Supervision per Deputy -per Deputy '4Jer month _ -- der month_ Adult Division 20 130 Juvenile Division 20 EO Investigations are conducted by Deputy Probation Officers to develop background information on persons who are before the Court for specific offenses . The information developed is used as' a basis for decisions by the Court as to whether or not such a person may be safely placed on probation in lieu of jail. , and, if so, under 'What terms and='conditions . The Deputy must search out every possible source of information, interview family members, friends , nGigh.bo-labors , employers, priests or ministers, teacr,.ers , etc . , until he is satisfied chat his information is reliable and suffi- cient - to uffi-•cient . to form a basis for an action rr-ecortinendation to the Court. At present, in this county, he does this work practically alone with little, if any, clerical assistance. "Cases" are persons on probation who have been assigned to a specific Deputy Probation Officer for supervision. Some proba-- tioners require more intensive supervision than others depending on the severity of their offense and the prescribed conditions. of the probation order. TATh.en properly performed, this supervision requires the Deputy to make personal visits to the probationer ' s home and . place of eiaploymen , to interview other persons when necessary to Probation Committee learn how the probationer is conducting himself in the -coim--inznity, to counsel him when circumstances warrant, and to assist him in solving problems that arise 'w'rtich tie seems unable to work out alone. Investigations and Case Supervision are very' t' ime consum- ing activities. Professionals in this field consider a work load of 35 to 50 Cases and 6 to 10 investigations- per Deputy . per month to be a properwork load. When such excessive work loads are assigned, as .is done in Contra Costa County, something has to "give" . Since the investi- gatory work is so important to the Courts ' handling of their cases, it is usually done to the best of the deputy' s ability. It is, then, the supervision of probationers that is inadequate for lack of time and clerical assistance. Probationary supervision �r9 erly performed is vital to the whole rehabilitation effort. In preparing their 1971-1972 fiscal year budget .for sub- mission to the Board of Supervisors, the Probation Department requested the following additional positions : 15 Deputy Probation Officers 3 Probation Supervisors 23 Clerks and typist clerks 1 Training Officer 6 Probation. Trainee positions 1 Adult .Probation Resource Officer (To develop employment and educational ., resources for probationers. ) 1 Adult Probation Jail Liaison Officer (To assist probationers with jail terms as a condition of probation. ) 2 Delinquency Prevention Officers (For expert guidance to local groups and with special emphasis on. drug abuse, coordinate delinquency prevention efforts at the local and county levels. Also to word: closely. with the Delinquency Prevention Commission. ) Total - 52 Probation Committee When it. was passed along to the Board of Supervisors, the County Administrator recommended only 12 positions: 7 Deputy Probation Officers, 3 typist clerk positions and 2 Probation Supervisors. The balance of the request was left up to the Board as "policy" decisions . The Board of Supervisors voted negatively on both policy matters thus giving the Probation Department only the 12 additional positions recommended by the Administrator. In rejecting 77% of the Probation Department ' s request, the Board seems to have paid little attention to some significant comments made by the Administrator in his submittal. For example: "As can be seen from the work load statistics shown above the activities for which the. Probation Department are respon- sible are continuing at the rapid rate of increase that has been prevalent for the last few' dears. . . "In addition to the change in juvenile cases, the adult cases under supervision are expected .to increase more than normal case load growth due to the necessity of picking up cases from the Intensive Supervision units as they are phased. out. " . . . the additional positions recommended should allow . . reasonable, although far from ideal, case load assignments. . ." The emphasis in the above quotations is our own. This committee does not agree with the use of the word "reasonable" in the last quotation. As one example, a training officer has been requested by the Department and recommended by others over a number of years without success . We fully concur with this request. It is the opinion of this committee that the full request of . the. Probation Department is reasonable and urgently needed. We Probation Committee recommend that the Board of Supervisors reconsider its decision. We are faced with an anomoly in this case. The Chief Probation Officer. is appointed by the Court and is responsible to the Court for departmental results . But the Board of Supervisors controls the purse strings, hence, unless they act wisely upon the requests of the Probation Department, they can frustrate the efforts of the Department, and the Court, as well . This is a point at which the closest kind of understanding and cooperation, mentioned in the beginning of this report, is needed. Parsimony where the probation activity is concerned is clearly false economy. Crime and delinquency are increasing for a variety of reasons well known to all of us . Under policies favoring detention, the county' s facilities are too small to hold all offenders. The cost .,to society keeps rising apace. Only a small percentage of those, flailed are beyond saving, but a great and coordinated effort is needed to save the others . Effective rehabilitation, education and counseling is the only practical way to solve this problem. The organizational machinery for this purpose is set up and working - but working at low speed and efficiency because of the financial brake that holds it back. AN ADEQUATE INVESTMENT IN REHABILITATION NOW WILL BE PAID BACK IN REDUCED CRIME AND DELTNQUENCY IN FUTURE YEARS. OTHER DEPARTMENTS AND AGENCIES The Juvenile Justice Commission The Delinquency Prevention Commission The Probation Committee attended .the monthly meeting of i Probation Committee these Commissions on SepteMber 13th. After their formal meetings were concluded, we reviewed the. entire field of probation and rehabilitation with them and the role they play in it. We were happy to find ourselves", in agreement with the Commissions in just about every factor involved and the possible solutions .. This gives us great hope. that the permanency of the Commissions, contrasted with she impermanence of Grand Juries, will result in many advances in the county' s efforts to rehabili- tate d.eiinquen.ts and reduce their future numbers . While they are advisory commissions only, they are directly representative of the citizens of this county- and, as such, deserve the respect and attention of all public officials. Foster Parents Association We met on September- 20th with the Foster Parents Associa.-- tion. Their records as foster parents prove beyond question their great capacity. for love and compassion toward the foster child. We are prepared to believe that the great majority of Foster Parr .eats have these sai, qualities in major degree. One must have the greatest respect for parents who are willing to take. a pre-delinquent or delinquent child into their. home and raise that child with their own natural children. They represent a tremendous asset . to society which should be used to the maximum degree in rehabilitation programs . They are the on?z ones who can provide a 'true home atmosphere for such children. .Noinstitutioncan do so. There are, at present, app=ximately 800 licensed Foster Homes in the county. Day care only is provided in 369 of them. Probation Committee Full—time 24-hour care is provided in 4:31 homes, two of which care for not only the child but a parent also. The. Foster Parents feel that their services are not being used by Contra Costa County to the extent they should be. Once licensed, a new Foster_ lHome iriaa •aai.t as , long as two years before receiving a foster_ child. Cons-_deri_ng the conditions which must be met by the Foster Parents before they can be licensed, and the delay (sometimes 10 to 12 months) before the license is issued, it is frustrating and discouraging to wait so long to .receive a child. The result is that some Foster Parents turn to adjoining counties to obtain c1lildren. Contra Costa County is the loser when they do so. In explanation of these delays , both the Probation and Social Service Departments point out the need to select with great care the home into which a ch.i ld will. be placed. They must be sure the Foster Parents selected can cope with the characteristics of the child involved, e.g. , they avoid placing a child who comes from a very poor home into an affluent: Foster Home. Other factors such as religion and state of physical or mental health must be considered, etc. The Probation Committee does not feel qualified to judge ' whether the Foster Parents are expecting the machinery of government to move . too fast, or whethercurgovernment agencies are being overly cautious and simply moving at traditionally low speed. We do, however, declare ourselves fully convinced that Foster Homes are the most effective means of rehabilitating neglected and delin- quent children. We urge 'our county ragenci_es . to move forward Probation CoTmmittee expeditiously and in the closest cooperation with each other , to utilize the available Foster 'Homes to the fullest degree and to recruit and license more of them. One handicap to recruitment .must be the rates of c.oni- pensation paid for child ca-.-'e. At present . these rates are : (1) $105 per month , for children through age u. (2) $110 per month for children ages 7 through ll. (3) $125 per month for children ages 12 to 21 . Separate approval of the Board of Supervisors may be obtained for . special cases involving crippled children and others requiring special nursing or medical care while in the foster home. The Committee is unanimous in its opinion that these rates are too low for (today' s level of the cost of living. We do not presume to be expert .,enough to say how much higher they should be, but we recommend that stun:ies be instituted promptly by the County Administrator ' s Office, in cooperation with the Delinquency Prevention Commission to determine the basic costs currently being experienced by Foster IT Band set compensatory new rates accordingly. The supervision of dependent children was transferred this year from the Probation Department to the Social Service Department, the latter Departiuent having the responsibility to recruit and license foster homes. The ProbationDepartment uses and supervises these foster homes as long as children under their jurisdiction are in those homes. We know of no cases where a child under Probation' s jurisdiction and another under the jurisdiction of Social Service are irr ;the same home. . Here, again Probation Committee we have a degree ,of divided responsibility between county agencies which requires the highest degree of policy coordination, coopera- tion and understanding if the interests of the foster. children are to receive first consideration. Contra Costa County_ Employees Association We met with the Probation Services Unit of Local #1 to learn their points of view of the probation system and program. They were most helpful and forthright in these discussions . We were particularly pleased with their constructive . attitudes and genuine concern that right solutions be found to the complex prob- lems of rehabilitation; We recommend that the 1972 Grand Jury give them a similar opportunity to expand on the ideas presented to us. Their contribution to- us was related largely to the problems of adult probation which. they compiled in a 40-page brochure entitled "A Report to the ..Grand Jury on County Detention Facilities and Operations of the Probation Department:" . Time and space do not permit our .going into detail as to the con-•. tents of the report, but we recommend to the county agencies concerned that they secure a copy of it for study. A comparison of their recommendations ,and our report will show we are in substantial agreement. : Deputy Probation Officers A meeting was held. with a representative group of Deputy Probation Officers who were chosen at random. They were found to have probation experience ranging up to more ,than 20 years. By Probation Committee the end. of the meeti;zg we were con-. inc:ed that the Probation Department is staffed with very, capable and dedicated deputies . There are things they wish to see changed and they ,have understandable concern for the slowness with which desirable changes come about. So do Grand Juries They will see in this report that many of. the Committ'ee ' s recoz_%mendations coincide with theirs . CONCLUSIONS Throughout the year the Probation Committee' s interviews and inspections havebroughtto its attention all the contrasting opinions and points of view of those mo-st concerned with the probation system in this county and its present means of dealing with the problems of crime and delinquency as the probation effort relates to them. The important question is , are we achieving the objective stated in the first paragraph of this report? The efforts- of our Probation Department and related agencies are succeeding to a degree, but in the opinion of this committee, it is a :small degree compared to what needs to be done and what can be accomplished. The county is spending large sums of money in the Proba- tion Department and the facilities under " their management. The Department `s, gross budget in the 1971.-1972 fiscal- year will be $5,555,144.00. In this report we have made recommendations which, if adopted, would increase that amount slightly. The question is .not really how much money is being spent, but rather how it is being spent --- on what kinds of facilities and what types of Probation Com`nittec programs, etc. The corr-nittee is concerned that the County Administration is headed for still greater outlays of capital funds and operating expenses in the belief this will produce the desired result based on present policies and philosophies . After ten months of study into these matters, this committee has concluded that there is -too much emphasis on jails and detention facilities and not sufficient effort made in treat- ing delinquency by means that lie outside such facilities. . Contra Costa . County is planning to build bigger detention ,facilities while other counties in California and across the nation are utilizing more modern and productive techniques and programs , Our County Administration seems to be quite stubborn in this matter of detention- facilities and quite out of step with the desires of their constituents . Proposed bond issues with which to build anew jail. and to remodel and enlarge Juvenile Hall have been rejected repeatedly by the voters , yet the county has set up a non-profit corporation under the name of the Contra Costa County Juvenile Facility Corporation to finance. and build expanded Juvenile Hall facilities. WE BELIEVE THIS TOTAL DISREGARD AND CIRCU14VENTION OF THE WILL OF THE PEOPLE IS WRONG AND SHOULD BE STOPPED. Unfortunately, and to the committee' s disappointment, the Probation Department seems to be in complete agreement .with this action. They too, seem_ to be enamoured of detention facilities as the most desirable first step in dealing with delinquent children. We do not agree. Such detention is necessary for only the most hardened and unresponsive delinquents and they are a ,small minority.. Probation Committee ` V j The existing Juvenile' Hall is ldrge enough to house. this type without further expansion if effective. action is taken to provide for the other types in programs. outside of the Hall . The popula- tion of the. Hall is down thi..s ;rear from last, and it can continue downward if these programs are. uti.lized. There has been no pack of I-de as and action recon menda- tions to both the Board of Supervisors and the _Probation Depart-' ment by which. to accomplish this result. other counties and states have demonstrated thatit can be done. The Juvenile .Justice and Delinquency Preventioiz Commissions , The Foster Parents Association, the Employees Union, various private agencies, past Grand Juries and even. the Probation Department' s own people who live with the delinquent probationers daily, urge that bigger and better_ deten-, tion facilities are not the answer. All of them have repeatedly submitted very specific program ;proposals to the Board of Supervisors and Probation Depart- ment involving new and tested ideas , which the Board and Probation. Department have consistently ignored, We can only conclude that our county officials are out of touch with the recent progress made in these matters and too set in 'their ways to change quickly enough to meet the preseri't crisis created by rapid population growth and the concurrent rise in crime and delinquency. •We suggest to the citizens of Contra Costa County that unless there is an immediate change of direction in the handling of delinquent children in this county, the present County Adminis- tration should be replaced by men with deeper perception, more flexibility and greater foresight. Probation Committee Release Date: 12-21-71 311 a AUDIT AND FINANCE COMMITTEE Richard J:, Kerbavaz, Chairman Grant Cotton. G. Stewart Paul Fortney H. Stark, Jr. Edward L. Wilson � r The Committee met with the County Auditor-Controller and reviewed the method used by his office for Internal' Audits . i We felt the scope was sufficient and reviewed the possibilities of a Management Audit, as well as a Fiscal Audit. The authority f� of the Grand Jury to engage an outside firm to perform a Manage- 1 ment Audit was questionable and was discussed with the County Counsel, 1 The 1971 Contra Costa County Grand Jury reviewed proposals submitted by several accounting firms and selected Ernst & Ernst to perform its audit of various Contra Costa County departments. j Suggestions made during outside audits , in past years, for better internal control of receipt books, cash, and authoriza- tion stamps are again among the suggestions made by Ernst & .Erns,t. i i In the course of the Financial Audit, they submitted suggestions in their letter of September 22 1971 which follows f Audit and. Finance Committee E R N S T & E 'RNST 1-330 BROADWAY - •� OAKLAND, CALIFORNIA 94612 a The Honorable Grand Jury County of Contra Costa Martinez , Ca"_'ifornia Gentlemen : Our .examination- of the financial statements of the funds. of the County of Contra" Costa for the year ended June .30 , 1971 has included reviews of accounting procedures and internal control in the major County offices and special districts gcverned by the Board of Supervisors . The following comments and recom- mendations pertain to matters which have come to our attention , thus far , as a result of these reviews . The individual comments are not necessarily intended .to be listed in order of relative importance . AUDITOR-CONTROLLER Internal Audit We reviewed selected working papers prepared by the Internal. Audit Division in their departmental reviews and financial audits of County departments , courts and special service districts governed by the Board" of Supervt"ors . We believe that the internal audit examinations have sufficient I scope and that they are being performed in a professional r manner . We believe , however , that improvement can be made I in the following areas : . I. 1 . The departmental internal control questionnaires , 6 flow charts , and procedures memos are not , in all r cases , being updated prior to the preparation of s a current year ' s audit program . i AUDITOR-CONTROLLER (continued). 2 . The present departmental internal control question naires .do not include space for relating actual audit tests, to specific internal control procedures to insure that theser.ocedures are actually being P Y g utilized in day-to-day transactions. 3 . The internal audit staff has been spending addi- tional time performing accounting work and preparing original accounting records in some departments when such departments do not have accounting technical capability. 4 . In certain instances , itappearsthat too much time is being p p spent on departments and divisions with less 1 relative significance than others ; and , also , too much ! time is being spent on apparently minor audit exceptions . - ; Detailed audit time budgets are not being prepared !1 and utilized for comparison to actual audit time I . .throughout an internal audit engagement . i 5. For one internal audit examination ,. we note& that a detailed review of the working papers by' the super- visor was, not performed because of his . evaluation of the previous performance of the auditor involved . . I. We recommend that procedures used by the Inte'rnal Altdit Division provide for : (1) a review of accounting procedures and internal controls by updating internal control question- naires , flow charts , and procedure memos prior to the AUDITOR-CONTROLLER (continued) preparation of an audit program; (2) the establishment of a time budget in sufficient detail prior to each examination based on the audit program; (3) review and approval by the audit supervisor of all audit programs and time budgets prior tothe commencement of each examination ; (4) utiliza- tion of the detailed audit time budget for comparison to actual time during the progress of an examination, with the reporting of significant variations to the audit supervisor for control purposes ; and (5) a detailed review of the working papers for each internal audit engagement by the audit supervisor . Receipts and Disbursements Receipts by mail coming directly to the Auditor-Control- ler ' s office are being transferred to. the Central Collection office or given to personnel at the front counter of the Auditor-Controller ' s office without a control being estab- lished . In addition , we observed that such receipts given to the front counter personnel remain unattended tri a desk during the working day even while these people are away from their desks. Signed warrants , or unvalidated warrants along with the facsim_.1e signature stamp , were also observed to remain tin- attended in the same manner as receipts . AUDITOR-CONTROLLER (continued) In order to tighten security with regard to the internal handling of receipts and disbursements within the department , we recommend that physical handling and other appropriate control procedures be established . The physical control of warrants was mentioned as• part. of last year ' s Grand Jury report. Approval of Journal Vouchers Some journal vouchers originated within . the Auditor- Controller ' s department are being approved by an accounting clerk; however , others prepared by this same clerk and those originating in other departments are not being approved in writing . We recommend that formal review procedures for journal vouchers be established and that such -review and approval be evidenced . in writing by the accounting supervisor . Data Processing Systems We have reviewed the data processing division of the Auditor-Controller ' s department . This review include4 . the systems division as it pertains to data processing and s related accounting - matters . Comments in this section deal with matters re.levant to either or both of these two divisions .. Our review of data processing _operations indicates . tt►at the data processing services currently being provided are generally reliable . The relatively low cost per unit of output is commendable for: an organization of this type and size. , AUDITOR-CONTROLLER (continued) Many of the older data processing systems were designed to be a combination of manual procedures and automated operations using tabulating equipment . These systems are still reliable , but mainly because of the experience and knowledge of the personnel involved and controls external to data processing . In order to increase the probability of continuing reliable services , we believe that a number of improvements should be implemented . The following comments and recom- mendations relate to these areas of possible improvement . We performed an indepth review of several data processing systems in the accounting area . Based on this review, we believe that a program should be instituted for the future redesign of integrated systems using more efficient and effective methods of data handling", internal system controls , and data storage . It is our understanding that a major study was conducted about two years ago to develop new systems and equipment requirements . We " r-ecommend that the results of this study be updated and a current detailed plan of action be developed . This plan should provide for alternate ways to achieve objectives , an analysis Of cost--benefits , and priorities; for accomplishment . . AUDITOR-CONTROLLER (continued ) The data processing division' s standards primarily emphasize programming requirements . We believe •that these standards should be expanded to include detailed requirements for systems design , file structure , data flow, field defini- tion, and documentation. There is a need for establishing a formal system for issuing interdepartmental policy and procedural directives and guidelines for data processing and related matters . This system might include the following. subjects : 1 . Requesting , approving , testing , and accepting new systems and programs or changes to existing programs . 2 . Composition, responsibilities , and duties of the systems and data processing. steering committee . 3. Standard procedures for the submission and control of input data for. data processing . 4 . Report and forms control . 5 . Documentation standards for the flow of -data within and between systems and for user 's manuals . The data processing steering -committee currently includes representatives from the County Administrator ' s office and . the Auditor-Controller ' s office . Steering committee task forces are created to handle specific projects and representa- tives from other departments may be included on these task forces . We . believe that other appropriate departments should also be represented on the steering committee , in order to. gplT,oR-CONTROLIER (continued) provide a broader spectrum of knowledge and interest within the County . The proceedings ofthe committee and task force meetings should be more carefully and fully documented to provide a. basis for post analysis . In addition , we recommend that the minutes be distributed to principal County officials and to appropriate department heads not represented on the steering committee or the task forces . At the present time, accounting system analysts and data processing programmer/analysts are separated into two divisions . There is some overlap in capability , although the programmer/analyst is more technically oriented toward data processing functions . It appears that there is a need for expertise in areas other than financial accounting systems , such as engineering . We recommend that a spectrum of disci- plines be developed within the data processing and/or systems divisions , as appropriate , in order to provide professional systems capability in several different areas . A two or four-year college degree is currentllg" required 4 for the data processing programmer/analyst positions . We believe that the personnel structure should provide for a programmer/technician category whereby the County would be able to realize economies in salaries. while providing job. opportunities for individuals with the required skills and training but who do not possess college degrees . •,r tIDITOR-CONTROLLER (continued) We have reviewed. certain data processing systems for the Possible use of automated audit techniques . We found that uniformity as to structure and content of common data is not always maintained between dependent systems . This situation does not pbevent the use of automated audit techniques ; how- ever , it does make their accomplishment unnecessarily time- consuming . As the use of data processing increases , the need to utilize automated audit techniques , by both independent and internal auditors , becomes greater in order to independently verify the County ' s computer programs . We recommend that future systems be designed for compatibility, insofar as practicable, with other dependent systems . Presently , no independent technical review or operational audits of data processing systems are being performed . We recommend that consideration be given to establishing a data processing capability on the internal audit staff . This could i be accomplished by having one auditor with a technical b-ack- ground in data processing and by requiring the remainder of the auditors. to have general knowledge in this area . The 4 internal audit staff could then perform the following review and audit functi.ops relative to data processing systems. 1 . An independent , technical review of data processing systems could be conducted at the design stage to insure compatibility with. other dependent systems acid to insure that internal control measures are adequate . !tt!I)I1'OR-CONTROLLER (continued) 2 . The internal audit staff could perform operational compliance reviews of data processing systems , where applicable , during their examinations . The compliance standards would have to be developed and a' questionnaire established for this purpose . 3 . With some additional training, the internal. audit staff would be in a position to utilize automated audit techniques , where practical . We understand that plans are being developed to construct a new building to house data processing functions , with com- pletion estimated during 1974 . In the meantime, the present facilities are not adequate to meet the growing requirements for data processing services and it has become increasingly difficult to provide adequate physical security for tape and card files . We recommend that plans be made to provide adequate space and support for data processing operations until the new building becomes ' available . Equipment is being installed at the location of . usier departments to prepare data processing input media . We 4 believe that this practice may result in reduced efficiency in use of equipment and personnel compared to the use of centralized services . In addition, adequate levels of input control must be maintained within these decentralized locations . We recommend that this practice be minimized unless a distinct advantage is present in each situation . ' 1 AUDITOR-CONTROLLER (continued) There are presently no formal policies for the long-term retention o,f information to meet both internal and external needs o-f the County . There is also a need to conserve storage space and to reduce file maintenance activities . We recommend that a master plan and supporting procedures' be developed to coordinate and control retention and destruction of documents , including files in machine-readable form. TAX COLLECTOR Cash Receipts During the heavy tax receipt periods , we noted a delay in the depositing of receipts with the Treasurer . We know that the department is aware of this situation and the re- lated loss of investment interest revenue . We understand that the department is presently investigating new receipt proces- sing procedures and that County system' s personnel are designing the requirements for these new procedures . We recommend that the system requirements and various courses of action be thoroughly evaluated for feasibility and s to obtain the maximum long-range benefit. The delay in depositing of receipts was mentioned in the prior year ' s Grand Jury report . PUBLIC WORKS Unused Receipt Books Unused receiptbooks are presently kept in an unlocked storage cabinet . We recommend that control and access to those .books be improved by storing in a locked container . fURLYC WORKS (continued) Cash Receipts A lack of proper segregation of duties between the handling of cash receipts and the posting of receivable records was noticed in the maps and documents section. A division of responsibilities is recommended so that no 'one person will handle a transaction completely from beginning . to end . FIRE PREVENTION DISTRICT Cash Receipts We noted that cash receipts are not always being de- posited on or before the fifth day of the following month as required by the Government Code of the State of California . Workmen ' s Compensation Checks State workmen' s compensation checks , prepared in the name of the employee , are being received directly by the District prior to the expiration of the eligibility period . Since payroll warrants have usually been issued to the employees for the eligibility period , the workmen ' s ,tompensa- Q tion checks .are held by the cashier in an unlocked desk drawer until the period expires . These checks are then deposited with the County Treasurer . We recommend that checks held in this manner be listed and physically stored in a locked container . FLOOD CONTROL - ZONE 3B Cash Receipts Cash receipts are not always being deposited with the Treasurer on or before the fifth day of the following month nooD CONTROL - ZONE 3B (continued) as required by the Government Code of the State of California . The physical security of receipt books should be improved as they are presently kept in an unlocked desk drawer . SHERIFF-CORONER Accounting- Functions The accounting functions of this department center around one individual . This person seems to be the only one who understands the accounting procedures and who knows where various accounting documents are located . We recommend that other departmental personnel be in- structed as to the accounting procedures and the location .of records , and be given operational responsibilities to provide a better segregation of duties within the department . This would improve the internal control and permit the continuity of the accounting functions in the absence of one individual . Receipt Books The department uses prenumbered receipt books , but does not , in all cases , follow the sequence even within 4ihe same 4 book. . In addition , receipts are occasionally written on the wrong series . . We- recommend that receipts be used in numerical sequence and that the receipt book series be utilized properly . COURTS Parkin; Citations Our review of unpaid citations at the Walnut Creek-Danville Municipal Court revealed that there are numerous old unpaid parking citations on hand . Warrants .for arrest have been COURTS (continued ) issued on these citations , but a large number of offenders cannot be located or it is considered uneconomical to attempt to locate them . We recommend that an investigation be made to determine appropriate methods of collection . COUNTY CLERK Cash Receipts There are currently seven clerks who handle money in this department . Each one has a separate receipt book and change fund . At the close of each. day , .the cashier must collect the money and total the receipts. from each clerk. We recommend that the use of .mechanical recording devices , such as cash registers , be considered in order .to reduce clerical requirements . Change Fund Physical security of the $100 . 00 change fund should be improved as it is presently kept in an unlocked desk drawer . SOCIAL SERVICES Authorization Stamp We noted in- our review of the Social Services Department that the rubber stam'p signature used for claim authorization is kep* unattended on top of a desk .. This was also disclosed in a recent audit by the Department of Social Welfare . We recommend that physical control procedures for . the authoriza- tion stamp be established . GENERAL Internal Control In a number of offices, we noted that the numerical sequence of cash receipt copies and the periodic accumulation of cash receipt totals are not being checked independently 'by office personnel . These procedures are performed only during internal audits . Verification of the recorded receipts is a function of internal control and is the responsibility of the individual department or district personnel . The internal audit staff is required only to perform a test of the recorded transactions to insure that the internal controls are functioning properly. In addition , certain departments and districts have not been providing an adequate division of responsibilities among their major accounting functions . We recommend .that County departments and districts be reminded of their responsibilities for establishing and maintaining internal control within their organizations . A good system of internal control includes appropriate ctecks and balances in order to reduce the possibility that errors A or irregularitie.s will remain undetected for any prolonged period . We appreciate the opportunity to present the above comments and recommendations and shall be pleased to discuss them further at your convenience . I � Additional comments and recommendations disclosed during the remainder of our engagement will be included in anot-her letter to be issued at the completion 'of our . examination: In. addition , ! all of the comments and recommendations presented to you during this year ' s engagement will be summarized in a final letter at the completion of our examination . Very truly yours , j Oakland , California September 22 , 1971 �. i • E i � p� • REWse Date; 12-20-71 Y TAXES AND ASSESSMENTS COMMITTEE Forrest J. Simoni, Chairman Leo Armstrong Richard Kerbavaz The property tax is one of the most regressive of all forms of taxation, and unrelated to the ability to pay. Gov-ern- mental agencies ' insatiable hunger for the tax dollar no longer can be satisfied from the property tax. At the same time voters, for the lack of understanding of complicated ballot proposals, are adopting Constitutional Provisions and the Legislature, by legis- lative action, expanding the "preferential" property tax treatment of special interests . Property taxes have reached the point where many of the retired, the aged, and the poor are driven from their homes in ever increasing numbers . The same principle applies to the small business- man. Sadly, but true, they cannot look to their local legislative body (Board of Supervisors) for any relief because this requires action at the State Government level. Annually, the State Legislators and the Governor speak well of "tax reform", "tax relief" and of other benefits for the home owners. The frightful tax load of today inclines the taxpayer Y to be more impressed by legislative action in his behalf than all . of the rhetoric his experience has taught him to distrust. If any property tax legislation is enacted, it usually results in a shift of the tax load from special interests to the home owner., Un- fortunately the home owners are not aided. by high priced lobbyists as are special interests. The net result is in most cases that the special interests obtained preferential tax treatment at the expense of the homeowners. The hour is late and the responsible government officials should act at once to relieve the home owner of the oppressive property tax load. Some immediate legislative action is indicated by the fact that dissatisfaction and rebellion is .obviously uppermost in the minds of the taxpayers. 1970 Grand Jury Recommendations The four recommendations made by the 1970 Grand Jury were reviewed with the County Assessor to ascertain whether they had been implemented, Our findings are as follows,: RECOMMENDATION 1 The automation of the Secured Roll Maintenance System has been completed.. A reorganization study of the Appraisal Division and the Clerical Staff is now under way. When this study is com- pleted, the Computer Assisted Appraisal Program will be implemented. RECOMMENDATION 2 To provide additional office space the county has pur- chased the Martinez Office of Western Title and Guaranty Company. The office will be modernized and staff moved in from rented quarters, hopefully, in 1972 . RECOMMENDATION 3 The .Audits Division is adequately staffed with Auditor- Appraisers . However, limited additional clerical help should be provided to relieve Auditor-Appraisers of routine clerical work. RECOMMENDATION 4 Moving of the lien date from March lst to January 1st and the use of "average inventory" rather than the value on the lien Taxes and Assessments Committee date require the implementation of state legislation. We ask that the Board of Supervisors continue, to urge our legislators to in- troduce and support legislation necessary to change the lien date. Properties Receiving "Preferential" Tax Treatment Certain properties are granted "preferential" tax treat- ment under Constitutional Provisions voted by the people, and other properties by the State Legislature. See Appendix III •for partial list. . The list may not be complete, but we feel we have mentioned the major ones. This practice results in a shift of the tax burden and it generally falls on those least able to pay -- the home owners. Annually the legislature is requested by special interests to give "prefen.ential" tax treatment to certain groups, and the list of properties in this class is growing at a steady rate. Reduction of Utility Assessments by State Board of Equalization The assessment of utility properties for tax purposes is extremely complicated. Therefore, the average taxpayer does not readily understand the process and as a result is most confused. To further complicate matters, the State Board of Equalization uses one formula to assess. utilities and County Assessors employ another to arrive at market value of locally assessed properties . The use of two methods of evaluation add to the confusion and lead to inequities between board assessed and locally assessed properties. The Committee felt it did not have the time nor the technical skills and experience to make a thorough study of the appraisal and assessment procedures followed by the State Board of Taxes and Assessments Committee i ` Equalization in assessing utility properties . Inasmuch as this is an involved evaluation and Equalization process that is adversely affecting the County tax base, we thought it was best to quote directly from the language of the County. Assessor, Mr. Fred Wanaka. "It is extremely difficult to estimate the tax loss attributable to the reduction in utility assessment ratios because of changing methods of allocating the value of that portion of the whole state unit assign- able to Contra Costa County, and determining what assessment ratio the State Board of Equalization has used in prior years . However, changes in allocating value between the counties of California appear to be relatively minor when compared to reductions in utility assessment ratios. "Part of the answer for the reduction may be .found in the attached assessed value tabulation. It shows comparative values and growth rate in percentages for the local roll and utility roll for the decade from . 1962 through 1971. (Appendix I) -This presents a graphic display of the effects of the. State Board of Equalization,' s actions in reducing the assessment ratio it employs and, during at least part of the period, changing the allocation ratio between several counties on a major utility installation in Contra Costa County. Since utility growth is dependent upon goods and services it must furnish a growing state, it would seem that there should be some correlation 'in growth factors Taxes and Assessments Committee of local and utility property. "IC has been only in recent years that the State Board of Equalization has announced publicly the assess- ment ratio used in its assessments . Prior to the time it started reducing its assessment ratio, the Board generally conceded that it was using a ratio of 50%. The announced downward trend in the Board's ratio began in 1965 and has reached a level of 29% for the, 1971-72 tax year, down from 31% for 1970-71. It is possible, however, that the downward trend began prior to this time, but is not -apparent on the attached chart because of substantial amounts of utility construction during that period. "We have used two methods to estimate the tax loss to Contra Costa County because of the change in the policies of assessing utilities . Admittedly more accurate estimates could be made, but it would require considerable time and effort beyond that which is available from this department with no assurance that the time and effort would have any effect upon present policies of the State Board of Equalization. .s "Referring to Appendix I, you will note that the assessed value of all public utilities for the 1971-72 tax year amounted to $171,329,540. Had the ,State Board of Equalization not reduced the ratio from 50% to 29%, the assessed value for the current year would have totaled $295,395,758, a loss of $1242066 ,218 in assessed Taxes and Assessments Committee value. Using a $12 . 56 composite tax rate' for the 1970 year, this would amount to $15 ,582,077 loss in tax monies. "Since 1962 , the assessment roll prepared by the Contra Costa County Assessor has increased 112 . 8%, while. the utility assessment roll prepared by the State Board of Equalization has decreased 7 . 08%. Had the utility roll grown at the same rate as the local roll, the assessed value of utilities would be $220,496,405 more than it is today. Additional tax monies available on this basis, would amount to $27 ,694,348 . "Previously, the Board of Supervisors of Contra Costa• County directed the Assessor to review the appraisal and assessment procedures employed by the State Board of Equalization with respect to utilities . I have included copies of these reports to give the Taxes and Assessment Committee further insight into the problem. " (See Appendix II) From the above certain conclusions may be drawn with re- ference to utility assessments . The reduction by the State Board of Equalization of the s assessment ratio for utilities is having a significant effect on the county property tax base. The shift in the tax load from State Board of Equalization assessed properties to locally assessed properties appears to be quite substantial, and seems to have fallen most heavily on the home owner. Although utilities have received a huge tax "wind fall" Taxes and Assessments Committee it has not reflected in lower_ utility rates for the consumer. Instead, recent experience tells us that . rates have been sub- stantially increased. The present formula used by the State Board of -Equaliza- tion in arriving at market value differs from the method used by County Assessors in evaluating locally assessed properties. This difference in valuation may result in lower assessments and in a tax break for utilities. Changing methods of the State Board of Equalization unitary ratio in allocating , value among the counties could result in the loss of additional assessed value to Contra Costa County. *In order to simplify the calculation of the tax which would be derived from this amount , we resort to the use of a county wide composite or average 1970 tax rate of $12 .56/$100 assessed value. This rate is computed by dividing the total net taxable value in the County into the total property tax levies . s Taxes and Assessments Committee RECOMMENDATIONS 1. We concur with past Grand Juries and recommend the State Legislature change the lien date from March 1 to January 1, and that the average inventory value be used for taxing purposes . 2 . Many Constitutional Provisions voted by the people, have granted preferential tax treatment. Steps should be taken to better inform the voters of all aspects involved and stress how it may affect individual home owners for any future Constitutional Amendments. Revenue and Taxation Code provisions , passed by the Legislature, granting preferential tax treatment of certain properties should be reviewed to determine the tax effect on home owners . If the study reveals a shift of the tax burden to home owners has occurred, the State Legislature and the Governor should take immediate steps to repeal these Revenue and Taxation Code provisions. 3 . We recommend the method of establishing market value of utility properties by the State Board of Equalization be more uniform with the formula used by County Assessors . We further recommend that the present utility r-.at'io of 29% be maintained until valuation uniformity mentioned above is achieved. Taxes and Assessments Committee .-1 0 0% rl . r C). c; f'�i 1 P 1 1 1 1 u) 1+ ul In M •0 o nC) ri \ Cl(-1 N CID O. (U In LO rOr-�� O O (� R N l R n\ nD r1 A (ti n (i w w w w w w w (A co - w w 1 w w M In V\ O tr . 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O � M V\ r-1 O of U M --1 O) 2i 6 ' w- % w w J-� W w w a0 Ln 4 N N N ri r-1 N O\ N to o .r--1 N a co C, r/ N N (•\ r-1 r--1 .M N: y 0 0 \0 O\ O\ N J r1 Cv .� �- .'.J co M' m .� a� �D [- a0 . J 10 M N r/ N M O\ In r♦ O r1 r-1 H H rl ri ri r� r-1 r1 JAI fA tR ( +S? # p (o p V; O ICINpA O i UN � ri O O O 91VN - . J w O w w N N CO pp N O\ \ `O \0 10 r-1 N Ia o VA EyvN a N in m coOr-1 aid rn m w !1 1 N \ O N M R _ r1 ri .i r 1 r 1 ri rl M Co ri 41\ �C— J \O N y AA c in t t~ ul ` co o\ \p O Q O Irn{ o I(n7 or *r? 0 (,- 0% O\ N W -C7 N O\ 'O tilO. N In .'il o. Q- ) 0 k_ . IA y O' . OV N. N O ri lr rn rl (y U C.• W cm w al O\ O rl N Jr\ .-t V\ 10 •r'; if tit 4) 1)tl N ISI Ill ll\. \SOA N u) Cr, (0 r1 OPPICA OP T1111 CCukrY ASSESSOR h Inter-Office Memo TO: E. P. Wanaka DATE October 28, 1963 most: A. W. Glendinning; A. J. Laporio S1111JEM Inquiry Report of State Assessed Utility Asscssmcnt Roll ' In compliance with Resolution No. 2157 of the Board of Supervisors, A. 11. Glendinning and A J. Lagorio .o.f the Assessor 's Department have again reviewed the State Board of Equalization's practices of assessment for the public utility roll . L. J. Eastman, Chief of the Valuation Division, State .Board of Equalization , pro- vided the necessary assistance. The results of the investi.rati.on j are indicated as follows : y Consistent with the apparent State Board policy of "equalizing" the utility roll , it appears that the Board. -is continuing its practice of gradually reducing' the assessmentratio"of State assessed properties. It is indicated that this policy may -continue indefinitely , or until the Board feels that the proper degree of equalization has been achieved. It may be further assumed that future utility growth Will tend to offset the. declining assessment ratio, and that the Board policy may be to reflect a slight Bain over the previous year's assessment roll and to adjust the assessment ratio to market. value accordingly. It was stated that , with normal county growth, A he Board roll would in all probability level off at approximately a ` one or two percent pain per year. { "Equalization" of the Board's market value ratios for taxable �. tangible ut ility property is still in its infancy . A reversal of the trend can only occur through a change of Board policy, a change 1 in the Board' s 'me't'hods of market value evaluations, or a fantastic over-nicht growth of the public utilities. i • In the actual inquiry, investigation acain was directed to the ' Pacific Gas and Electric Co. , the lar^est taxpayer in our county. < The survey revealed the continuation of the . Board policy to "equalize and reduce the assessment ratio" of utilities. In its 1963 appeal to , • the State Board of Equalization, Pacific' Cas and *Electric affirmed that "several years ago• we were quite hopeful that you were embarking •' upon a program of gradual equalization and, ' indeed, our studies indicate that you were doing so. A similarlstudv of our nssessment for the taxable year 1962-63 indicated that i the Board was acain ;a beginning to work toward gradual equalization. We stronr;ly urge. ci that the Board continue in this program so I hat equalization can gradually be achieved." 1 /o E. P. Wanaka -2- October. 2R, 1963 Board valuations are serrerated bet%%ccn two classes of prop- erty , unitary and nonunitary. Unitary property consists of the integral operating network of the utility; i .e. , the unit of rroduc-. tion. This property is valued as a whole , and the assessment, is then allocated to the vnricus counties in proportion to thei r share ' of the unit. Nonunitnry property is nonoperative or not essential to the operation of the tit ility. It consists of pipelines, leaned facilities, vacant land, etc. Nonunitary assessments are made • individually to the county where the property is situated, and no allocation is necessary. A few years apo, it was established that the. Bonrd was assess- inr all property at a ratio of 50% of its opinion of market value . . Members of the Board have recently expressed the use of approximately it 450,10 assessment .ratio, and we arc led to believe that unitary l property may currently be ,assessed within a ranee of 42 - 45% of value. The assessment ratio of nonunitary properties has been reduced i from a 307 ratio in 1961 to a current minimum of 25%. I The local assessment roll has shown a 'consistent annual prowth of 7 - 9% over recent years. Conversely, the annual growth of the P6ard roll has. diminished from F'% in 1960 to a subsequent low of less than 1%. It is apparent that the "gradual equalization" from i • approximately a 4576 assessment ratio may continue for quite some time. i "Equalization" of the Board roll has had a disturbing effect on Contra Costa County' s utility assessment.. Normal economic growth of the largest state of the Union presuproses similar economic Frowth of service industries within the State . In the case of Pacific. (:as and Electric, it has been prnblicl.ily stated that significant rrowth had occurred in the past year. However , the policy of the hoard has . ' not made t his evident in the assessment roll,. Procedurally, the .` Board resolves the market value of a utility , deteinnincs the ratio, and submits the assessed value to the Valuation Division for alloca- tion to the proper taxinrr jurisdictions. The allocation ratio is :. determined by dividing the unitary property assessed va.11.ic by the replacement cost less depreciation value of the unitary system. In spite of the economic rrowth of the Pacific Gas and Electric, the allocation ratio decreased from 30.7857o in 1962 to 30 .121% in 1963 , an over-all decrease of 2.2 o. Using the 1962 assessed value of the : T` Pitt sburp Steam Plant , the 2.256 decrease in the allocation ratio would have resulted in a loss of over one million dollars of assessed value in tha.t particular code area. New construction reduced this ' loss to tFOO,000. "Equalization and the reduction of the assess- ment ratio" will c ontinuc to have far-reaching effects upon the State utility assessment roll . A compensat:inp effect in -an individual { • county may be the de¢•ree of new construction and, consequently,. the , I degree of allocation which that particular 'county may receive. i .{ . , i E. P. Wanaka ..3 October 28, 1963 i The Contra Costa (Antioch) Steam Plant continues to be an V Cxceptioh. Po11owinr the recommendation of the joint Interim Committee on ^sse_.smcnt practices, May 1.959 , the iloard has been i attempting to acijn st the "overallocation" of value at the Antioch Plant . Although other unitary property assessments were hcinr. allocated nt 30.P7o of replacement cost less depreciation in I.962, the Antioch Plant was still allocate(( on a 3670 basis . Expansion � of the Antioch Plant permitted the State hoard Valuation Divi;ion to adjust this allocation ratio as painlessly as possible. The current allocation ratio of the Antioch Plant was reduced from 36) to 32.431'0 of its replacement cost less depreciation. Conse- quently , the 1963 assessed value of ',33,P27,000 reflected little �. change over the S22,F26,740 assessed in 1962, and Contra Costa i County received little or no assessed value increment on the 19- million dollars invested in Antioch during 1962. It is forecast . that similar adjustments will be made to the Antioch Plant alloca- tion ratio in the future. . ,In summary, it has been stated factually that the hoard is "equalizing and reducing; the assessment ratio." This policy should result in a declining rate of growth of the State utility roll. An optimistic forecast is for one or two percent annual ' increase in Contra Costa County' s utility assessment. Even this prediction is contingent upon substantial utility expansion within the County. The Contra Costa (Antioch) Steam Plant' assessment is being t ' adjusted to conform with other unitary property allocation ratios . Future expansion will be offset by a declininf allocation ratio, � . and no appreciable increase in assessed value can be anticipated within the immediate future. AJC:im}S , ! PICU OP T112 CCUI1TY ASSESSOR Inter-Office Memo TO: J. P. McSen DATAs October 28, 1963 County A(D. � istrator r1komI 13. P. wa ,a1,1 County A se: sor SUt.iJP.CT: ReviProcedures )in State Assessed Properties Attached is a copy of a report made by A. 11. Glendinning and A. J. Larorio concerninr their current investigation of the assess- ment of utility properties. i It would appear that the appraisal and assessment procedures ' followed by the State Board of Equalization are consistent with those of last year and .also consistent with their announced pro- cedures of gradually reducing utility assessments. ' This is further, evidenced by the r.radual reduction in the ratio of State assessed property to the entire .jassessment roll . r 1955 26.227. 1956 22.66 19.57 21 .43 1958 21.19 r 1959 20.95 ! E ti 1960 20.08 ' 1961 19.99 1962 18.90 1963 17.x5 • In summation, we may conclude that there will be : f 1. A continued shift in the tax burden from State assessed properties to common property owners caused by a reduction in assessed values of existing facilities of the various utilities. 2. A reduction in the :alloca.tion of the total s state-wide assessment of given ut il.ities to Contra Costa County will further reduce - + assessed 'values in Contra -Costa County." • ; ; 3. Continued emphasis on income which because : . of statutory ceilings , is the lowest indi- cator of value. f IF • J. P. Mc' Brien • ` •2- CTctoher 28 , 1963 The heart of the controversy continues to center around the } question of whether or not a monopolistic industry which is subject j to an additional povernmentaI remilation should, because of this , ' enjoy a different treatment of the valuation concepts than privrto industry. I i 41 • I 1 .. 3/14/67 An Outline of the Proceduros Followed by the i California .Stato Board of Equalization ! in the Allocation of the Unitary Assossmonts of ! State Assesseos to Taxing Jurisdictions Section 14' of Article XIII of the Constitution nayn, " in effect, that the Board of Lqualization shall value and assess the properties of utilities and railroads, and then further, all property so assessed by the Board shall be subject to thxa tion to the same extent and in the same manner as other propc7ty". ' The Constitution tells the Board what to do, but not how to do it. The values of public utility and railroad properties. aro determined on a "unit" basis, and it is repugnant to ' the "Unit value" theory -to attempt to assign portions of the unit ! . value to the component parts of the unit. However, it has to be done if the Board is to comply with the requirements of the Constitutional provisions, that is, the unit value has to be allocated to the situs of the component parts so that the properties may be "subject to taxation to the same extent and same manner as other property". While an allocation procedure has to be more or less arbitrary, it is almost axiomatic that the allocation of the unit .... .value to each of the. component parts should be, as nearly as ' possible, in proportion to the amount that the part contributes to the earnings of the company, as earnings are: the very essence of value. In light of this, the Board feels that the unitary assessed value should be allocated in proportion to the repro- duction cost new less "depreciation (RCiILD of each component part of the property. Others feel that the allocation should be in J.. proportion to the historical cost less depreciation (HCLD) rather than RCNLD. The reason that the Board feels thatallocation on i + the basis of MILD is. more valid can be explained best by an ' example. Suppose .that two identical hydroelectric power plants jwere constructed by a power company, ' ono 'Just before World War II and one immediately after, when the average price levels were s almost twice as high. Each plant is generating the same amount of power and will continuo to do so for practically the same ° number of years in the future. Each plant is going to produce . i practically the same total amount of a saleable product between •� the present time and its retirement date. That is, each plant's production and hence its contribution to the company' s total i. earnings, Is practically the same. Howevor, if the unitary value was allocated in proportion to IICLD, the pre-war power plant would i have only about one-half the "allocated assessment" that the poste. ,I , .war plant would have. If the allocation, was made upon a basis of ' RCNLD, tho "allocated assessments" would bepractically the same • ; �'. which is patently more .equitable. -2- Those that support allocation in proportion to IICLD, ! do so mainly on the basis that, in California, IICLD is the nmount upon which the utility is allowed to earn. ULD, or rate � . , baso , in an amount that the rertlatory commission consider'] only i• in the aggrogato in rnto determination. The rates dotor•minod 'nrosupposed to insur.c an adequate return on the amount originally invested that still remains in service and to insure a return of ' the original investment by the time the property has to be re-- placed, that is, to preserve the integrity of the investment.' , Other bases of allocation have been suggested, most of which involve physical units instead of dollar figures. For example, for electric companies the unitary value would be allocated to. situs in proportion to conductor-miles, or for a railroad, in proportion to track miles. VIhile some states do allocate value in this manner, there is not much to recommend the method except .ease of application. The actual mechanics of allocation of the unitary value under the Board' s present procedure are somewhat labor- ious, but not too complicated. The assossees are required to file property statements each year in which they list all their property in each county by location segregated to tax code areas. Cost is .associated with each item in the listing, or can be ; determined readily from associated reports. Tax code areas are geographical'areas 'in which a common combination of tax rates is applicable to a given class of .property (that is'. land, improve- ments or personal property) . Prior to the time of the filing of the property state- ment by the assessees, the Valuation Division. of the Board has made reproduction cost new less depreciation studies from which j the RCPILD of each item listed in the .property statement can be determined. The basic information for these studies obtained from the companies' accounting records, is .dollar-age information , a segregation of the dollars invested in tangible assets by .� year of investment. This Jnformation results in a determination f of remaining dollars invested in the property by year of place ' mont for each reported item. By use. of "cost factors" the Division trends these costs up to present price levels tt arriving at an estimate of what it would cost to reproduce the . items of property today. Based on the date the property was put in service and on lives estimated by the Division, appropriate amounts of depreciation are determined and the final RCPILD's are arrived at .►• • by items. The Valuation Division maintains on a current basis over seventy different "cost factor" or price-trending curves, each of. which is applicable to a different class or type of -utility or railroad property. . The information for constructing 1 \ ! those curvos is obtained from many sources, such as actual comparative costs from utility companion, costs and cost Indexes furnished and published by the Interstato Commerce Commission, , Enrinooring Now-n-Record, Marshall 6- Stevens Valuation Sorvico, Whitman, Roquardt and A:s:sociatos, Oil and Gas Journal, Railway Age, E. If. Doeckh ane( Associates, etc. The live:s .uscd in depreciation determinations are also based on many .source, of • • information, but mainly on observed ages of utility and railroad Properties at time of retirement and, more importantly, on application of mortality curves to gross addition and retirement 1 � data of properties of utilities and railroads consisting .of many ., • similar units. The condition percent tables used for deprecia- . tion calculations by the Division are based on present worth principles (using; sinking fund formulas) adjusted for reduced ! productivity with age. ' 1 The actual allocation calculations are somewhat as �. follows: By consideration of the indicators of value,. historical s cost less depreciation, reproduction cost new less depreciation, capitalized earnings, and the ,mar}tet value of stock and debt, furnished by the Valuation Division to the Board for each assess©e9 the- Board determines the unitary assessed values. The unitary assessed values are than submitted by the Board to the Valuation Division for allocation to taxing jurisdictions and preparation i of Board Rolls for each county and for each city having its own _ ± assessor. The Division compares the total unitary assessed values s of the properties of a particular assessee with the total RULD of the same properties as determined by the studies mentioned ? above. Suppose, for example, the Board' s unitary assessed value is $3,500,000 and the comparable total. RCNLD is X101000,000. The - ratio of assessed. value to RCNLD then, is. 35%. If the allocated assessment of each item listed in the assessee's property istate- Ment is found by multiplying the RCNLD of each item by 35,Z, and then all the allocated assessments are added up, they will total ' j 83,500,000, the total unitary assessment fixed by the Board. There aro some deviations from the strict policy of allocating •assessod vnluo of the unit by application of the ! ratio of the assessed value to RCNLD. Certain properties which + are not of a special-purpose character (e.g. land and material and supplies) are first segregated from the unit value and 'are given an allocated assessed value that is equal to the respective products of their appraised value and the ratio of the assessed �. value of the unit to the appraised value of the unit. Then, after the total unitary value is adjusted by the total allocated ,a assessed value of these non-special-purpose properties, the • remainder is spread to the component parts in proportion to " t RCNLD, as described above. The allocated assessments of these • non-special-purpose properties is a comparatively small percent- . .age of the total unitary assessed values. It probably should be. montionod that non-unitary proportion of state annonneos do nct- present an allocation problom. Thin typo of property connints of non-operati.vo propertion , that in, propertici ohne, but not unod in the primary function of tho compnny, nuch ns lnnds ownod by a rail- road ail road but lennod out for agricultural purposes, properties leased from others by the assessce, possessory interests, and money. Theno items are listed in the property statement of t}ho assessoe by tax code areas, and the Valuation Division determines the market value of cacti item separately. Assessments for these properties, which are 25% of market value, are recommended by the Division to the Board for adoption. 3/14/67 An Outl1no of the Princi.plos lldhored to and the Procoduros Followod by the California Stat:o hoard i or Equalization in tho Vnluntion of tho Unitary . Proportion of Public UtiJ.itios and Railroads For Taxation Purposes In the novonuo and Taxation Code, value is defined as . follows: "Valuo ' , ' full cash value' , or 'cash value ' means the amount at which property would be taken in payment of a just debt from a solvent dobtor. " Fundamentally, this is the same as the somewhat expanded definition of value that the Committee on Unit ! Valuation of the N ationnl Association of Tax Administrators l included in its report on "Appraisal of Railroad and Other Public Utility Property for Ad Valorem Tax Purposes" , published in 1954. j . In its report_ the committee defined value for tax purposes as follows: " 'Value for tax purposes' is the price at which a property could be sold at a Given date if the seller had ample opportunity to seek out the highest bidder, and the bidders, in turn, had ample opportunity to inform themselves of the character- istics of the property and to ascertain the terms upon which alternative properties, if any, could be bought. It is not the same thing as cost,; although the two tend to be equal at the time the cost is incurred. It is not the same thing as 'value for rate-malting purposes' although the rate base established by a regulatory agency tends to equal the value for tax purposes if the utility is ablelto earn what the agency regards as a fair return and no more, and the agency's concept of a fair return coincides with that of. the investing public. Value is not " necessarily the present worth of the future income actually to be derived from the property, nor is it necessarily the present worth of the assessor's own best estimate of the future income;. ! it is the expectations of investors which Govern values, even though they may differ from those of the assessor." " The Doard� subscribes to this definition of value and in the valuation of the operative properties of state assosseas endeavors to use principles and follow procedures that conform .. • to this definition. To the extent possible, the' Doard' s valuations are unit appraisals, that is, appraisals of integrated properties as a whole without any reference to the value of the component ' parts. Complete now appraisals are ipade each year. In making unit appraisals of utility and railroad •1 ` properties, four main indicators of value are developed, not all of which are available for all properties. These indicators ! i ' ares I 1. Historical cost loss doprociation 2. Reproduction cost new loss depreciation I 3. Capitalized earnings Stock and debt value The Doard! is also supplied with other data bearing on • valuol whore appropriate. Historical cost less dem rociption is considered to , be a very important indicator of value for ga3j_clectri.c and "telephone companied- because it_is comparablo in California to the rate base, the amount upon which the regulatory commission allows the utility to earn what it considers a fair rate• of return sufficient to provide adequate service to the connumer " •i and to attract necessary additional capital investment. It is not an important indicator of value for railroad properties , I . however, as most railroad companies, by reason of the competi- tion to which they are subjectare unable to charge enough to make a fair return on the• net Investment in their properties. This indicator includes some amounts that are not included in the rate base and excludes some that are included. For example� it includes Donations in Aid of Construction, which is excluded in the rate base, as there is nothing in the revenue laws of the State that excludes this property from taxation, and excludes "working cash", whish is included in the rate base as this I-- an san intangible and the hoard' s unit assessments .inciude only tangible property. The depreciation which is deducted from the original cost is the book depreciation, since this is the amoun . .that has been deducted to arrive at the rate base. It might be well to point out that if a public utility is sold, the price paid by the new owner does not become the •rate base.. The rate base continues to be the original investment (minus depreciation) in the property made at the time property • was first devoted to public use. Reproductionit new less depreciation is not con- -co.sidered to be an imporant indicator of value -far unitciry 3tato- Assessed property. No prospective purchaser, it is believed, would consider paying, an amount equal to the reproduction cost • � . new loss depreciation of a gas, electric or telephone company when it greatly exceeds the historical cost new less depreciation upon which the regulatory commission would allow him to earn a "fair" return. For railroad properties it is meaningless because of the existence of the great amount of obsolescence and other '• functional inefficiency in the properties. However t this indicator is regarded as a ceiling for taxable 'value. . The California Constitution exempts franchises from property tax, and it is considered that any value greater than reproduction cost now less depreciation is franchise value. As earnings aro the vory cosence of value, the Board r fools that capitalized earning value is one of the most important value indicators. In capitalizin,; earnings, tho Board seeks to find the valuo to n pro:inoctivo purchasor--tho amount that the I proopoctivo purchanor could pay for, tho proporty and havo tho Original cost returned to him by the timo the property is worn out, with interest on his invostment until it is fully returned. The Board capitalizes three different amounts. The, i first of these is net operating revenue before depreciation. The reason for not deducting; depreciation is that the present oGmer's � depreciation charges arc for writing off h1.n investment and are not necessarily an accurate statement of the yearly loss in the present worth of the futuvo earnings. In capitalizing before . j depreciation, the Board adds an increment to the basic capital- ization rate that will provide for a return to the purchaser of i his investment by the expiration of the calculated composite life expectancy of the property. This increment- provides for deprecia— tion eprecia tion of the investment of the prospective purchaser, or return of his capital, not of the present owner' s cost. The Board does not capitalize net earnings after depreciation, that is, in perpetuity, as this would produce the same appraised value for an old property that has a life expectancy of one year and for a relatively new property that has a life expectancy of, say, j 25 years. ' In capitalizing before depreciation, the income taxes . '., " are "normalized" by adding back into the stated amount of taxes any reductions due to rapid amortization, accelerated depreciation9 and investment tax credit, as they would not be available to the purchaser of the property. Also, any amounts that are due to adjustments of prior years' taxes are eliminated. The' second amount the Board capitalizes is not operating • revenue before depreciation and income taxes. The rate for ; capitalization at this point is the basic rate, plus increments ! for depreciation and for income taxes. The income tax increment is obtained by the use of a formula that takes into account the effect of the depreciation charges and the probable capital • � structure of the prospective purchaser, using the assumption i that the capital structi.ire will be tho same for all companies in a given class. The Board fools that say, a railroad does not have a greater value than another simply because it has more indebtedness and therefore has a smaller income tax obligation, other things being equal. ; The third amount that the board capitalizes is net •. before depreciation, income taxes, and ad valorem taxes. The. total capitalization rate in this case includes -an increment for '.r ad valorem taxes based on the total taxes levied on the previous • I 1 • year's asaossed valuo divided by tho previous year' s mrnrkot vnlue. This in effect ba ,es ad vfilorem taxe:i on the value j being found rather than on the val.uo that served as the prior I year' 3 tax base. Thi:j Incrcmcnt can be accurately doterninod only .for an intrastato compnny and is only usnd for such companion. The Board con:9i.ders the capitalization of this earning figure the most reliable of its. capitalized income figures. The basic capitalization rate used in earning-valuo calculations is detormined by the. Board on the basis of current rates of interest or return which the prospective purchaser ; would have to pay. on the various typos of securities with which .-.he would finance his purchase. The capitalization of past earnings is a valid indi- cator of value only ;if the past earnings reasonably reflect, in the Judgment of the appraiser, what the earnings will be in the future. For this reason, the Board adjusts earnings before •' • ''. capitalizing to remove the effect of any nonrecurring losses of income, and to take 'into account any increase in income that can be reasonably expected, such as that due to future rate increases. " • The Hoard capitalizes a five-year average income for companies i . with little or no capital expansion such as railroads, but for growing companies such as gas, electric, and telephone companies, the Board fuels that only the income of the latest year is :t - pertinent, as the income of any prior year does- not reflect the income from the presently existing property, the property being . ..valued. The stock and debt indicator .of value is derived for All companies whose securities are traded on -the market in substantial volume-. The market value of the outstanding equity securities and debt obligations, plus the market value of the current and deferred liabilities, establishes .the gross stock 4 and debt value. To obtain the market value of the tangible. linitary property, all assets that aro not part of the unitary :i." property or arc not assessable whoso value is reflected in the market value of the liabilities must be deducted. These deductible items consist of such property as accounts receivable, .'nonoperative properties, sinking funds, stock and bonds of other companies, and licensed motor vehicles. The average prices of j ••'�• securities. for the previous twelve months are used for current i value determinations, as this period is believed to be sufficiently '• long to smooth out the effects' of any momentary extraneous in- fluences on the market, but not too long to reflect the current ' opinion of value in the market place., !' . In the final determination of market value, the Board : . does not use a formula to weight the various indicators-of value, ` but gives such weight to each indicator of value for each assessee as appears to be 3ustified by all the facts in its possession. ` APPENDIX III CONSTITUTIONAL PROVISIONS Article XIII Section 160 et sed. - Taxation of Publicly Owned Property. Reference here is to the East Bay .Municipal Utility District . Property_ of municipal districts is exempt where those properties lie within the district boundaries . Until recently, the method of assessing the properties located outside the District was similar, to other properties'. In the last election, a Constitutional Amendment was passed prohibiting the assessor from increasing the value of those lands lying outside the District by any percentage greater than the population increase. Said factor is to be computed. by the State Controller. Therefore population does not reflect a full measure of the increase in property values . Article XIII Section 206 . , This Section provides that private non-profit golf courses shall be assessed as golf courses rather than according to the market value of the land. It is discriminatory in that it allows country club golf courses to be assessed at a lower rate than a public golf course. Article XIII Section 14-4/5 (Taxation of Insurance Companies) and Section 16 (Taxation of Corporations) refer to the taxation of banks and corporations. Banks and insurance companies pay a State tax measured on their return which is in lieu of certain property taxes. Article XXVIII - Open Space Land. This provides for preferential treatment of real estate based upon its earning ability rather than market value of the .property. At the present, this exemption. is not significant in ;Contra Costa County. . However, there Taxes and Assessments Committee a3 y - is action in the Legislature to remove many of the restrictions required to qualify as open space land. If this is done, there could be a substantial drain on local revenue as it is non- reimburseable by the State.- REVENUE AND TAXATION CODE PROVISIONS Section 209. 5 provides that vessels of more than 50 tons burden are exempt from taxation while under construction. Other types of property are taxable while under construction. Sections 218 and 219 provide for homeowners ' $750. 00 exemption and for 30% exemption in business inventory. Unless there is legislation extending this 30%, it will revert to 15% next year. The monies lost by these exemptions are reimbursed by the State. . Section 227 . Certain documented vessels, in particular fishing vessels, are to be assessed at 1% of full cash value instead of the 25% used for other properties . This is not signifi- cant in Contra Costa County at the present time. Section 988 provides that the value of motion pictures is the value of the tangible material, that is the salvage value of the film itself. This is not significant in Contra Costa. County, . but is a good example of preferential treatment. Section 991. Baled cotton is taxed at 1/10 of 1% of its value: Section 992 . When wine, winery products , or brandy products are manufactured in .California by .a licensed wine grower., they are subject to taxation only once while so held on the first day in March on which they are held immediately following production ay Taxes and Assessments Committee or manufacture. Section 5363 . Aircraft are to be taxed. at 1-1/2% of the full cash value as determined by the assessor.. This is in compari- son to the tax of other properties which in general amounts to between 2 and 3-1/2% of market value. Sections 5501 through 5523 . This provides for the taxa- tion of livestock used for the production of meat for human con- sumption or fibre, not including swine or dairy cattle or male animals held primarily for breeding purposes . The rate of tax im- posed is 5 mills per head a day that the animal is within the County. Not only has this substantially reduced the tax revenue from our largest agricultural industry, but it becomes an adminis- trative nightmare in attempting to enforce the law as it is written. O,.5 Taxes and Assessments Committee GRAND JURY CONTRA COSTA COUNTY P.O. Box 1110 ' MARTINEZ, CALIFORNIA 94553 December 21, 1971 Z4- Courthouse VSD tSCH The Honorable Richard E. Arnason UPERVISORS Judge of the Superior Court TA Contra Costo County -- - eputy Martinez, California Dear Judge Arnason: It is my pleasure to submit to you the final report of the 1971 Contra Costa County Grand Jury. As our term ends, I convey the thoughts of the members of the Grand Jury who express that this has been an experience and an education long to be remembered. It is hoped that they have rendered a service that will contribute to the betterment and progress of our county. My appreciation and thanks go to the jurors for their dedication to the responsibilities of their duty. The man hours devoted by the jurors during the year were indicative of this dedication. An average of 15 members ' per meeting were in attendance at 22 regular and special meetings , and 35 indictment hearings. The duration of the meetings approximated 3-1/2 hours each, which calculates to 3000 man hours or 375 man days . In addition, work by committee chairmen and their members was also impressive in terms of hours spent. These assignments approximated 2000 man hours during the year or 250 man days . Untold hours ' spent by our jurors -in writing their reports are not included in the time required to fulfill their investigatory assignments . In filing our final committee reports it must be explained that many juror hours were given in reviewing the work of the committees. Each report reflects the judgment ' of the majority of our jury members. As Foreman, it was necessary for me to call on you from time to time regarding important jury matters. Honorable Richard E. Arnason -2- December 21, 1971 Your advice helped me immeasurably in our work. Despite your dual judicial responsibilities, both in Contra Costa County and Marin County, you found time on two occasions to speak before the jury on matters of interest to them. You can be assured of their appreciation. The jury also had the opportunity of having the following speak to them at several of our meetings on subjects related to jury interests : The Honorable Thomas F. McBride J. P. McBrien, County Administrator E. F. Wanaka, Tax Assessor �j Michael J. Phelan, Chief Assistant District Attorney Supervisor James P. Kenney Supervisor Edmund A. Linscheid Capt. Alan Burton, Detention Division - Contra Costa County Jail Lt. Del Masters , Jail Commander Acknowledgement is made for the beneficial assistance rendered to the jury by the District Attorney, Chief Assistant District Attorney and County Counsel. The Secretaries of the Superior Court, Elaine Abbott and Jeanne Wright, deserve very special thanks for their efficient service to the jury. Our jury was fortunate in having a secretary of the caliber of Mrs . Bernice Lasell, who fulfilled her assign- ment creditably. Very truly yours , WOR rNGTOForeman of e Grand y HVW:ea ,ii RICHARD E.ARNASON J4:! `,•,P t Er uF��xttrntu y; � ` JUDGE DEPARTMENT 2 COUNTY OF CONTRA COSTA t� [� J COURTHOUSE MARTINEZ, CALIFORNIA 94553 December 10 , 1971 Mr. Henley V. Worthington Foreman of the Grand Jury 411. La Vista Road Walnut Creek, California Dear Mr. Worthington: Please allow me this opportunity to personally thank you and the members of the 1971 Grand Jury for your service and dedication during the past twelve months. Being a Grand Juror is in many respects a thankless job. A great many hours are spent not only at meetings of the entire panel, but also by the committee members who devote so much of their time in order to submit their final reports . I am particularly pleased that your r committee reports have been so promptly filed. I am confident that this is a testimonial to your capable leadership. This has been an exr-a1-len-t•-3ze.ar for the Grand Jury. Your cooperation ha-g--leen very muZ-� appreciated. J Sincer-'&Iy�• CHARD E. ARNASON J dge of the Superior Court REA:ea iii MEMBERSHIP - 1971 GRAND JURY JUROR CITY Ernest J. Arata Antioch Leo Armstrong El Cerrito ,. William C. Beck E1 Sobrante Henry Cano Pittsburg Grant F. Cotton Lafayette Edson B. Fisher Walnut Creek ' Alymer B. Hussey Concord Sal Jimno Pittsburg Richard J. Kerbavaz Richmond } Mrs. Bernice Lasell Martinez G. Stewart Paul Walnut Creek Donald E. Perkins San Pablo Arthur W. Read Concord Forrest J. Simoni Richmond Fortney H. Stark, Jr. Danville Peter A. Veitch Orinda Arthur Wagstaff Orinda Edward L. Wilson E1 Cerrito Henley V. Worthington Walnut Creek -iv- j 1971 GRAND JURY COMMITTEES S� EXECUTIVE FOREMAN - Henley V. Worthington SECRETARY - Mrs. Bernice Lasell FOREMAN PRO TEM - William C. Beck SECRETARY PRO TEM - Forrest J. Simoni AUDIT AND FINANCE PLANNING AND PUBLIC WORKS Richard J. Kerbavaz, Chairman Grant F. Cotton, Chairman Grant F. Cotton Ernest J. Arata G. Stewart Paul William C. Beck Fortney H. Stark, Jr. Peter A. Veitch Edward L. Wilson Arthur Wagstaff CIVIL SERVICE PROBATION Sal Jimno, Chairman Alymer B. Hussey, Chairman Henry Cano Leo Armstrong Edson B. Fisher William C. Beck Arthur W. Read Bernice Lasell G. Stewart Paul HOSPITALS, CLINICS AND ' SOCIAL WELFARE SPECIAL DISTRICTS Edward L. Wilson, Chairman Fortney H. Stark, Jr. Chairman Bernice Lasell G. Stewart Paul j Donald E. Perkins Donald .E. Perkins Forrest J. Simoni Peter A. Veitch Arthur Wagstaff JUDICIAL TAXES AND ASSESSMENTS Leo Armstrong, Chairman Forrest J . Simoni, Chairman Edson B. Fisher Ernest J. Arata Alymer B. Hussey Leo Armstrong Sal Jimno Richard Kerbavaz Arthur Read LAW ENFORCEMENT Arthur W. Read, Chairman William C. Beck Henry Cano �. Grant F. Cotton Sal Jimno Richard J. Kerbavaz Donald E. Perkins REPORT OF THE SECRETARY 1 On Januar 8th in Department Two of the Superior Court Y P P the panel of 19 persons for the 1971 Grand Jury was drawn as well as 5 alternates , Judge Richard E. Arnason presiding.. At that time, Henley V. Worthington was appointed by Judge Arnason to act as Foreman for the year. At our first meeting in January, Mrs. Bernice Lasell was elected Secretary, William C. Beck as Foreman pro tem and Forrest J. Simoni as Secretary pro tem. At this meeting, the i' resignation of Mervin D. Gray was read and Sal Jimno, as first alternate, was sworn in as a juror. Committee assignments were made at the second meeting. Jurors had an opportunity to state their preferences and assign- ments were made accordingly. Committee meetings designed to carry out the task of the Grand Jury took up the bulk of the jurors ' time. A total of 22 regular meetings and 35 indictments were held. At this same meeting, we formed the policy of request- ing indictments to be held in the afternoon whenever possible in order to reduce expenses of the staff. Consequently 80% were afternoon indictments . Our task could not have been completed without the help of many persons, and we extend our thanks to the numerous county and city officials and employees and private citizens who met with us. I want to personally thank Elaine Abbott and Jeanne Wright for the assistance given to me. And a special thanks to all the members of the Grand Jury for their thoughtfulness and many courtesies during the year. They were much appreciated. Respectfully submitted, BERNICE LASELL Secretary of the Grand Jury 1� -vi- TABLE OF CONTENTS PAGE AUDIT AND FINANCE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 CIVIL SERVICE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 GENERAL COMMENTS AND RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . 136 HOSPITAL, CLINICS AND SOCIAL WELFARE. . . . . . . . . . . . . . . . . . . . . . . 22 INTRODUCTION TO COMMITTEE REPORTS. . . . . . . . . . . . . . . . . . . . . . . . . . . 1 JUDICIAL. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31 LAW ENFORCEMENT. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 PLANNING AND PUBLIC WORKS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55 PRESS RELEASES. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 137 PROBATION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66 SPECIAL DISTRICTS FAIR EMPLOYMENT PRACTICES IN CONTRA COSTA COUNTY. . . . . . . . 88 RECOMMENDATION FOR MODIFICATION OF SUPERVISORS ' STATUS AND SALARY. . . . . . . . . . . . . . . . . . . . . . . . . . 96 FUNDS TO HIRE CONSULTANTS FOR THE GRAND JURY. . . . . . . . . . . . 98 TAXES AND ASSESSMENTS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 112 INTRODUCTION TO COMMITTEE REPORTS Each committee' s report has been studied, edited and accepted as the report of the full Grand Jury. Much time and effort was expended in these investigations and we sincerely hope e the effort will not have been in vain. However, past experience indicates that most of our recommendations will be commented upon (as is required by law) but politely ignored by the Board of Super- visors and other county officials who have the power to adopt them. 1 Any unbiased person who makes a comparison of the recom- mendations contained in these reports with recommendations made by other Grand Juries over the last six to ten years will see that the same or similar recommendations are made year after year , which, with equal repetition, are filed away without significant action by our county officials . We do not claim infallibility, nor do we expect that every recommendation will be accepted. But it is our strong opinion that the public ' s interests suffer when Grand Jury recommendations are so consistently and cavalierly ignored with but a token few being applied. We invite and urge interested citizens and citizen groups who desire to improve the general welfare of our county to study this and previous Grand Jury reports as an information base upon iwhich to make their own policy and action decisions . Grand Juries have no enforcement or political power but an informed electorate is a power to be respected. It is our hope that some of the infor- mation in these reports might reach the voters of Contra Costa County through the transmission belt of citizenry involvement. -1- Release Date: 12 -21-71 j AUDIT AND FINANCE COMMITTEE Richard J. Kerbavaz, Chairman , Grant Cotton G. Stewart Paul Fortney H. Stark, Jr. Edward L. Wilson The Committee met with the County Auditor-Controller and reviewed the method used by his office for Internal Audits. We felt the scope was sufficient and reviewed the possibilities of a Management Audit, as well as a Fiscal Audit. The authority ' of the Grand Jury to engage an outside firm to perform a Manage- ment Audit was questionable and was discussed with the County Counsel. The 1971 Contra Costa County Grand Jury reviewed proposals submitted by several accounting firms and selected Ernst & Ernst to perform its audit of various Contra Costa County departments . i Suggestions made during outside audits , in past years, for better internal control of receipt books, cash, and authoriza- tion stamps are again among the suggestions made by Ernst & Ernst. In the course of the Financial Audit , they submitted suggestions in their letter of September 22 ,' 1971, which follows . i l -2- Audit and Finance Committee ERN T & S ERNST 1 3 3 0 - BROADWAY I OAKLAND, CALIFORNIA 94612 The Honorable Grand Jury County of Contra Costa Martinez , Ca:'_ifornia Gentlemen : Our examination of the financial statements of the funds of the County of Contra Costa for the year ended June 30, 1971 has included reviews of accounting procedures and internal control in the major County offices and special districts gcverned b the Board of Supervisors . The following comments and recom- mendations pertain to matters which have come to our attention , - thus far , as a result of these reviews . The individual comments are not necessarily intended to be listed in order of relative Iimportance . AUDITOR-CONTROLLER rInternal Audit We reviewed selected working papers prepared by the IInternal Audit Division in their departmental reviews and financial audits of County departments , courts and special service districts governed by the Board of Superv3'sors . We believe that the internal audit examinations have sufficient scope and that they are being performed in a professional mat>ner . We believe , however , that improvement can be made in the following areas : 1 . The departmental internal control questionnaires , ' flow charts , and procedures memos are not , in all cases , being updated prior to the preparation of a current year ' s audit program . -3- Audit and Finance Committee R-C (continued) , AUDITO ONTROLLER 2 . The present departmental internal control question- naires do not include space for relating actual audit tests to specific internal control procedures to insure that these procedures are actually being utilized in day-to-day transactions. 3 . The internal audit staff has been , spending addi- tional time performing accounting work and preparing original accounting records in some departments when such departments do not have accounting technical capability. 4 . In certain instances , it appears that too much time ' is being spent on departments and divisions with less relative significance than others ; and , .also , too much time is being spent on apparently minor audit exceptions . Detailed audit time budgets are not being prepared and utilized for comparison to actual audit time throughout an internal audit engagement . 5. For one internal audit examination , we noted. that a detailed review of the working papers by' the super- visor was- not performed because of his evaluation of .the previous performance of she auditor involved . We recommend that procedures used by the Internal A,:uit Division provide fo.r : (1) a review of accounting procedures and internal, controls by updating internal control question- naires , flow charts , and procedure memos prior to the -4- Audit and Finance Committee ' AUDITOR-CONTROLLER (continued) preparation of an audit program ; (2) the establishment of a time budget in sufficient detail prior to each examination based on the audit program; (3) review and approval val by the audit supervisor of all audit programs and time budgets prior to the commencement of each examination ; (4) utiliza- tion of the detailed audit time budget for comparison to actual time during the progress of an examination, with the reporting of significant variations to the audit supervisor for control purposes ; and (5) a detailed review of the working papers for each internal audit engagement by the 1 audit supervisor . Receipts and Disbursements Receipts by mail coming directly to the Auditor-Control- ler ' s office are being transferred to. the Central Collection office or given to personnel at the front counter of the Auditor-Controller ' s office without a control being estab- lished . In addition, we observed that such receipts given to the front counter personnel remain unattended n a desk during the working day even while. these people are away from their desks . Signed warrants , or unvalidated warrants along with the Ifacsimile signature stamp , were also observed to remain :in- attended in the same manner as receipts . -5- Audit and Finance Committee AUDITOR-CONTROLLER (continued) In order to tighten security with regard to the internal handling of receipts and disbursements . within the department , we recommend that physical handling and other appropriate control procedures be established . The physical control of warrants5was mentioned as part of last year ' s Grand Jury . report . i Approval of Journal Vouchers Some journal vouchers originated within the Auditor- Controller ' s department are being approved by an accounting clerk; however , dthers prepared by this same clerk and those originating in other departments are not being approved in writing . We recommend that formal review procedures for journal vouchers be established and that such review and approval be , evidenced in writing by the accounting supervisor . Data Processing/Systems We have reviewed .the data processing division of the Auditor-Controller ' s department . This review included the systems division as it pertains to data processing and related accounting matters . Comments in this section deal with matters relevant to either or both of .these two divisions . Our review of data processing operations indicates that , the data processing services currently being provided are generally reliable . The relatively low cost per unit of , output is commendable for an organization of this type and size . , Audit and Finance Committee 1 AUDITOR-CONTROLLER (continued) Many of the older data processing systems were designed l to be a combination of manual procedures and automated operations using tabulating equipment . These systems are still reliable , but mainly because of the experience and knowledge of the personnel involved and controls external to data processing . In order to increase the probability of continuing reliable services , we believe that a number of improvements 1 should be implemented . The following comments and recom- mendations relate to these areas of possible improvement . We performed an indepth review of several data processing systems in the accounting area . Based on this review, we believe that a program should be instituted for the future redesign of- integrated systems using more efficient and effective methods of data handling, internal system controls , and data storage . It is our understanding that a major study was conducted about two years ago to develop new systems' and equipment requirements . We recommend ' that the results of this study be updated and a current detailed plan of action be developed . This plan should provide for alternate ways to achieve objectives , an analysis of cost-benefits , and priorities; for accomplishment . -7- Audit and Finance Committee AUDITOR-CONTROLLER (continued) ' The data processing division' s standards primarily emphasize- programming requirements . We believe that these standards should be expanded to include detailed requirements for systems design, file structure , data flow, field defini- tion, and documentation,, There is a need for establishing a formal system for issuing interdepartmental policy and procedural directives and guidelines for data processing and related matters . This system might include the following subjects : ' 1. Requesting , approving , testing , and accepting new systems and programs or changes to existing programs . 2 . Composition , responsibilities , and duties of the systems and data processing. steering committee . ' 3. Standard procedures for the submission and control of input data for data processing . , 4 . Report and forms control . S. Documentation standards for the flow of' •data within and between systems and for user ' s manuals . The data processing steering committee currently includes representatives from the County Administrator ' s office and , the Auditor-Controller ' s office . Steering committee task forces are created to handle specific projects and representa- tives from other departments may be included on these task forces . We believe that other appropriate departments should also be represented on the steering committee , in order to. -8- Audit and Finance 'Committee AUDITORCONTROLLER (continued) provide a broader spectrum of knowledge and interest within Ithe County . The proceedings of the committee and task force meetings should be more carefully and fully documented to provide a- basis for post analysis . In addition, we recommend that the minutes be distributed to principal County officials and to appropriate department heads not represented on the steering committee or the task forces . At the present time, accounting system analysts and data processing programmer/analysts are separated into two divisions . There is some overlap in capability , although the programmer/analyst is more technically Y oriented toward data 1 processing functions . It appears that there is a need for expertise in areas other than financial accounting systems , ' such as engineering . We recommend that a spectrum of disci- plines be developed within the data processing .and/or systems divisions as appropriate , in order to provide professional systems capability in several different areas . A two or four-year college degree is currentl-� required for the data processing programmer/analyst positions . We ' believe that the personnel structure should provide for a programmer/technician category whereby the County would be able to realize economies in salaries while providing job opportunities for individuals with the required skills and training but who do not possess college degrees . 1 -9- Audit and Finance Committee AUDITOR-CONTROLLER (continued) t We have reviewed certain data processing systems for the possible use of' automated audit techniques . We found that uniformity as to structure and content of common data is not always maintained between dependent systems . This situation does not pi-event the use of automated audit techniques ; how- ever , it does make their accomplishment unnecessarily time- consuming . As the use of data processing increases , the need to utilize automated audit techniques, by both independent and internal auditors, becomes greater in order to independently verify the County' s computer programs . We recommend that ' future systems be designed for compatibility, insofar as ' practicable, with other dependent systems . Presently, no independent technical review or operational , audits of data processing systems are being performed . We recommend that consideration be given to establishing a data ' processing capability on the internal audit staff . This could be accomplished by having one auditor with a technical back- ground in data processing and by requiring the remainder of the auditors to have general knowledge in this area . The internal audit staff could then perform the following review and audit functions relative to data processing systems . , 1 . An independent , technical review of data processing systems could be conducted at the design stage to , insure compatibility with. other dependent systems and to insure that internal control measures are adequate . ' -10- Audit and Finance Committee 1 r Atli)1TOR-CONTROLLER (continued) 2 . The internal audit staff could perform operational compliance reviews of data processing systems , where applicable , during their examinations . The compliance standards would have to be developed and a• questionnaire established for this purpose . 3 . With some additional training , the internal audit staff would be in a position to utilize automated raudit techniques , where practical . rWe understand that plans are being developed to construct a new building to house data processing functions, with com- pletion estimated during 1974 . In the meantime , the present facilities are not adequate to meet the growing requirements for data processing services and it has become increasingly difficult to provide adequate physical security for tape and card files . We recommend that plans be made to provide radequate space and support for data processing operations Iuntil the new building becomes available . Equipment is being installed at the location of . us--P-r departments to prepare data processing input media . We believe that this practice may result in reduced efficiency rin use of equipment and personnel compared to the use of ' centralized services . In addition, adequate levels of input control must be maintained within these decentralized locations . ' We recommend that this practice be minimized unless a distinct advantage is present in each situation . 1 -11- 1 Audit and Finance Committee r _ r AUDITOR-CONTROLLER (continued) There are presently no formal policies for the long-term retention of information to meet both internal and external needs of the County. There is also a need to conserve 1 storage space and to reduce file maintenance activities . We recommend ,that a master plan and supporting procedures be developed to coordinate and control retention and destruction of documents , including files in machine-readable form. TAX COLLECTOR r Cash Receipts During the heavy tax receipt periods , we noted a delay in the depositing of receipts with the Treasurer . We know that the department is aware of this situation and the re- lated loss of investment interest revenue . We understand that r the department is presently investigating new receipt proces- sing roces sing procedures and that County system' s personnel are designing the requirements for these new procedures . We recommend that the system requirements and various courses of action be thoroughly evaluated for feasi}li'ty and , to obtain the maximum long-range benefit . The delay in depositing of receipts was mentioned in the prior year ' s Grand Jury report . ' PUBLIC 14ORKS �i Unused Receipt Books Unused receipt books are presently kept in an unlocked storage cabinet . We recommend that control and access to those books be improved by storing in a locked container . , -12- Audit 12-Audit and Finance Committee PUBLIC WORKS (continued) Cash Receipts ' A lack of proper segregation of duties between the handling of cash receipts and the posting of receivable records was noticed in the maps and documents section. A division of responsibilities is recommended so that no one person will handle a transaction completely from beginning ' to end . ' FIRE PREVENTION DISTRICT Cash Receipts We noted that cash receipts are not always being de- posited on or before the fifth day of the following month 1 as required by the Government Code of the State of California . ' Workmen ' s Compensation Checks State workmen ' s compensation checks , prepared in the name of the employee , are being received directly by the 1 District prior to the expiration of the eligibility period . Since payroll warrants have usually been issued to the ' employees for the eligibility period , the workmen ' s ,,tzompensa- tion checks are held by the cashier in an unlocked desk drawer until the period expires . These checks are then deposited ' with the County Treasurer . We recommend that checks held in this manner be listed ' and physically stored in a locked container . FLOOD CONTROL - ZONE 3B ` Cash Receipts , Cash receipts are not always being deposited with the Treasurer on or before the fifth day of the following month -13- Audit and Finance Committee t r FLOOD CONTROL - ZONE 3B (continued) as required by the Government Code of the State of California . , The physical security of receipt books should be . imp.roved ' as they are presently kept in an unlocked desk drawer . SHERIFF-CORONER Accounting� Functions The accounting functions of this department center around r one individual . This person seems to be the only one who ' understands the accounting procedures and who knows where various accounting documents. are located . We recommend that other departmental personnel be in- structed as to the accounting procedures and the location .of ' records , and be given operational responsibilities to provide r a better segregation of duties within the department . This would improve the internal control and permit the continuity ' of the accounting functions in the absence of one individual . Receipt Books r The department uses prenumbered receipt books , but does ' not , in all cases , follow the sequence even within 4rhe same book. In addition , receipts are occasionally written on .the wrong series . We- recommend that receipts be used in numerical sequence and that the receipt book seri.e.s be utilized properly . ' COURTS ' Parkin; Citations Our review of unpaid citations at the Walnut Creek-Danville t Municipal Court revealed that there are numerous old unpaid parking citations on hand . Warrants for arrest have been -14- Audit and Finance Committee , COURTS (continued ) ' issued on these citations , but a large number of offenders cannot be located or it is considered uneconomical to attempt to locate them . We recommend that an investigation be made to determine appropriate methods of collection. ' COUNTY CLERK Cash Receipts There are currently seven clerks who handle money in ' this department . Each one has a separate receipt book and change fund . At the close of each. day , the cashier must collect the money and total the receipts from each clerk. ' We recommend tbat . the use of mechanical recording devices , such as cash registers , be considered in order to reduce clerical requirements . Change Fund 1 Physical security of the $100 . 00 change fund should be improved as it is presently kept in an unlocked desk drawer . SOCIAL SERVICES Authorization Stamp We noted in- our review of the Social Services Department that the rubber stamp signature used for claim authorization is kept. unattended on top of a desk . This was also disclosed in a recent audit by the Department of Social Welfare . We recommend that physical control procedures for the authoriza- tion stamp be established . I -15- -Audit and Finance Committee GENERAL Internal Control In a number, of offices , we noted that the numerical sequence of cash receipt copies and the periodic accumulation Of cash receipt totals are not being checked independently by office personnel . These procedures are performed only during internal audits . Verification of the recorded , receipts is a function of internal control and is the responsibility of the individual department or district personnel . The internal audit staff is required only to perform a test of the recorded transactions to insure that the internal controls are functioning properly. t In addition , certain departments and districts have not been providing a.n adequate division of 'e'-sponsibilities among, their major accounting functions . , We recommend that County departments and districts be reminded of their r-esponsibilities for establishing and maintaining internal control within their organizations . A , good system of internal control includes appropriate cftecks and balances in o-rd'er' to reduce the p'os-sib-ility that errors or irregularities will remain' undetected for any prolonged period . We appreciate the opportunity' to present the above comments and recommenda;tions. and shall be pleased' to discuss them further at your co,nveniemce . -16- Audit and. Finance. Committee , Additional comments and recommendations disclosed during ' the remainder of our engagement will be included in another letter ' to be issued at the completion of our examination . In addition , all of the comments and recommendations presented to you during this year ', s engagement will be summarized in a final letter at the completion of our examination . Very truly yours , J, Oakland , California ' September 22 , 1971 -17- ' Audit and Finance Committee Release Date: 11-18-71 CIVIL SERVICE COMMITTEE rSal Jimno, Chairman Henry Cano Edson B. Fisher Arthur W. Read 1 When this committee was appointed by the Foreman of the 1971 Grand Jury, we reviewed the Civil Service Committee Report of 1970. We found that a Civil Service Task Force of 15 members had been appointed by the Board of Supervisors on December 30, 1969. Their final report was to be submitted early in 1971, however, there ' was a delay. The rough draft report has now been submitted, but as of October 13, 1971, the County Counsel ' s office had not returned the rough draft with its comments and opinions. An investigation by our committee at a time when the 15 ' member Civil Service Task Force has finally put in about 18 months time and held 22 formal meetings with approximately 1,000 man hours of work could well be redundant. We have reviewed the Final Rough Draft Report of the aforementioned Task Force dated June 18, 1971, (which was received by our committee in September, 1971) , and the minority statement dated June 22 , 1971. We ' recommend that the Board of Supervisors ' do not change the Civil Service Ordinance Sections 2 -7. 702 and g 4 ' 24-7 . 704, as we disagree with the Task Force. Following are the Sections as they presently appear in County Ordinance No. 70-17 : i "Section 24-7 . 702 . Management Decisions. It is the exclusive right of the County to make all decisions of a managerial or administrative ' character including, but not limited to decisions : (1) On the type, extent and standards of services to be performed; -18- ' Civil Service Committee (2) On the methods, means and personnel by which the County' s operations and services are to be conducted; and, ' (3) Necessary to exercise control over County Government operations in the most , efficient and economical manner practicable and in the best interest of all citizens of the County." ' We believe Management Decisions should be the exclusive right of the County. "Section 24-7 . 704. Management Direction. . It is the exclusive right of the County to direct its employees including, butnot limited to directions : (1) Scheduling work, assigning work, or ordering overtime; (2) Classifying positions , establishing and revising classification specifications; and/or (3) Hiring, promoting, demoting, transfer- ' ring, laying-off, discharging and disciplining employees." We further believe that Management Direction should remain the , exclusive right of the County. We further recommend that the Board of Supervisors consider the Minority Statement, particularly where- in the Minority Statement recommends against removal of Article 24-7.23 on Sanctions from the employer-employee ordinance. This ordinance reads : Article 24-7 .23 - Sanctions "Section 24-7.2302 . Exclusive Local Sanctions . Notwithstanding the provisions of Title I of this Code, the sanctions and appeals provided in this Article are the only sanctions and appeals provided by county ordinance or regulation for violations of the_ provisions of this chapter. We .recommend that Section 2411 be retained. It reads : ' "Creation of Civil Service Commission. There is hereby created a -19- Civil Service Committee ' Civil Service Commission, the members of which shall be appointed by the Board of Supervisors. The Commission shall consist of five (5) members , each of whom shall serve four years and until ' his successor is appointed and qualified. The members shall be selected from the qualified electors of the county. Vacancies in the commission shall be filled by appointment by the Board of Supervisors for the unexpired term only." We disagree with the proposed Task Force recommendation tArticle B paragraph 1 which reads : "The Personnel Advisory and Appeals Commission shall consist of five members.. Two members shall be appointed by the Board of Supervisors directly and they tshall be citizens who represent interests other than those of employee organizations; two members shall be appointed by the Board of Supervisors from lists of persons nominated by the employees in the Classified Service of the County (such lists to contain four ' nominations for each position to be filled) . The fifth member shall ' be appointed by the Board of Supervisors from a list of four persons nominated by the four thus appointed. The members shall serve for 1 four years. Terms shall be staggered." We have met with various concerned people and groups, including Mr. F. E. Emery, Director of Personnel, who was most cooperative. Meetings were held with Mr. A. J. Luhks, Jr. , Chair- man of the Civil Service Task Force, also Mr. H. D. Funk, one of the signers of the minority report. We met with Mr. James J. Carroll, Executive Vice President of the Contra Costa Taxpayers Association ' as well. as Mr. W. G. Treanor, Chairman of the Civil Service Commis- sion. We also attended several of the meetings of the Civil Service -20- Civil Service Committee Commission to understand the operations of that group. ' It is our understanding that the basic function of the Civil Service Commission is to serve as a safeguard against the abuse of administrative authority, but it is not to usurp the role , of administrative officials . The Office of County Hearing Officer was established when , the Civil Service Commission had more duties than at present. In recent years the Board of Supervisors have taken most of the Commission' s work. from them, therefore, there is no need for a , separate Hearing Officer. It is believed that the Commission itself should be .able to handle the various appeals and hearings. The ' Hearing Officer renders a legal opinion on the matter before him, rather than an administrative decision. The regular staff attorneys ' who attend these hearings could give the legal decisions when they , are necessary. A hearing before the Commission would be a less formal ' procedure with a considerable saving of time. We believe that better- administration will result from the Commission' s personal ' involvement. There is no question but that a financial savings ' will benefit the County by eliminating the position of Hearing Officer. Decisions should be rendered promptly, particularly so ' in cases of dismissals since extended delay raises additional problems. ' We believe that many of the administrative problems , minor grievances , etc . , should be worked out between employee and his department head and if necessary, the Director of Personnel. , -21- ' Civil Service Committee 1 Release Date: 11-11-71 ' HOSPITALS, CLINICS AND SOCIAL; WELFARE COMMITTEE 1 Edward L. Wilson, Chairman Mrs. Bernice Lasell Donald E. Perkins ' Forrest J. Simoni Approximately $85 ,000,000 was spent by Contra Costa ' County in the general area of Public Assistance during the fiscal ' year 1970-1971. This expenditure represents over 60% of the County budget; therefore, it is an area which justifies efficient administrative and operating procedures in order that the citizens of the County receive maximum benefits at a minimum cost. ' The Committee was frustrated in its attempt to review ' the health care and social welfare facilities within the County. Both of these areas are extremely complex; therefore, the Grand ' Jury Committee lacked the required technical ability and experience to make a comprehensive evaluation of these services. In addition, ' the Committee did not receive direct, factual answers to many of its inquiries. There was a general tendency for the Committee to be informed of some minor problems in a department while certain other major problems were not mentioned. In other words, the Committee was not taken seriously by the majority of departments involved. SOCIAL SERVICES DEPARTMENT The 1970 Grand Jury conducted a comprehensive review of the problems of welfare within the County. In general, the 1971 ' Grand Jury agrees with its report and supports its recommendations.. Therefore, the 1971 Grand Jury conducted a minimum review of the -22 - Hospitals, 22 -Hospitals, Clinics and Social Welfare Committee Social Services Department. As a . result, we have the following ' . comments : (1) Welfare, which is administered by the Social Ser- ' vices Department, has a very poor public image. In order to ' illustrate the relative importance of the various welfare costs , it may be worthwhile to summarize the Department 's 1970-1971 budget : ' Administration $ 1522871674 Aid to Needy Aged 7 ,028 ,503 Aid to Needy Blind 7062320 , Aid to Families with Dependent Children 27,4192100 Support & Care of Persons 1 821 600 , PP > Aid to Totally Disabled 931502480 ' General Relief 1,090 ,890 Aid to Families with Dependent Children is the program which is , subjected to the most public criticism. Some of this criticism is well justified. However, it is the hope that recent welfare reforms will change the laws in this area. Most of the welfare , programs provide only a minimum standard of living for the aged and the handicapped. These are areas which may justify additional expenditures. The administration cost of over $15 ,000 ,000 appears to ' be large. Since approximately 50 percent of this is derived from ' local property taxes, it is an area of immediate concern. Within the past several months the Department has had a major reorganiza- tion. It is the hope of the Grand Jury that this will result in a reduction of administrative costs . ' -23- , Hospitals, Clinics and Social Welfare Committee (2) The Department has improved in the general area of fiscal responsibility. The fact that the Department was well within its budget for the year 1970-1971 should be considered. This accomplishment is noteworthy, considering the present economic climate. (3) Department personnel have a serious attitude toward individuals who attempt to take advantage of the welfare system. ' The public should be aware that the Department is very concerned about welfare fraud. If citizens have any concerns they should contact the Social Services Department, rather than to spread rumors in the community. (4) The Committee visited several District offices of ' the Social Services Department. We were impressed with many indi- viduals who had a deep interest in the people they serve. However, we received an impression that there was a lack of productivity in many offices. Many offices appear to operate in a very casual manner. This impression has carried over into the community--there is a general feeling by the public that many employees of the Social Services Department do not put in a full days work for a full days pay. Since salaries in the Social Services Department trepresent a yearly expenditure of over $12 ,000,000, it is extremely important that employees make efficient use of their time. HOSPITALS AND CLINICS The delivery of health care services in Contra Costa County involves a complex' system of public and private facilities . The specific area considered by the 1971 Grand Jury was the -24- Hospitals, Clinics and Social Welfare Committee efficient use of these facilities. We did not .attempt to evaluate the quality of these services. However, we are convinced that efficient use of facilities will result. in a general improvement of services for the same expenditure of funds . The County Hospital and the three tax-supported district hospitals were visited and the following observations were made: CONCORD HOSPITAL DISTRICT The Concord Community Hospital is a 189 bed modern faci- lity. It appears to be operating in a fiscally responsible manner-- yearly operating income and expenditures are approximately equal. All money derived from property taxes ($.20 per $100) has been used to acquire land near the hospital which will be used for parking and future expansion. The recent cut-backs in Medi-Cal and the ' economic recession has not affected the operation of the hospital. There appears to be an efficient use of their physical facilities and there is some cooperation with private hospitals in the area. The District plans to use a .joint powers agreement with the County in order to raise the necessary funds for its expansion. This will avoid the need to receive approval from the voters of the District.,. The 1971 Grand Jury is concerned about this method ' of expanding District facilities. We are certain that if the expansion is justified the residents of the District will respond and approve the necessary bonds directly. PITTSBURG HOSPITAL DISTRICT Pittsburg Community Hospital is a small 85 bed facility which is housed in a remodeled one-story building. Remodeling has been completed with the aid of a small tax rate ($.03 per $100) . -25- Hospitals, Clinics and Social Welfare Committee The Hospital Administration and the Board of Directors of the District are to be complimented in the operation of a very effi- cient community based hospital. There appears to be a lack of cooperation between the Hospital, County Hospital and private hospitals in the area. A laboratory in Berkeley is used for certain work rather than facilities in other tax-supported hospi- tals in the County. WEST CONTRA COSTA HOSPITAL DISTRICT (BROOKSIDE) The 1971 Grand Jury received several requests for an investigation of the operation of Brookside Hospital. There was criticism of the efficiency of its operation. The Hospital is a modern, well-equipped facility of 246 beds . It has, for the past two years, received $750,000 per year from property taxes (approxi- mately $. 14 per 100) . This money has been used primarily for the purchase of new equipment and to supplement an operating deficit . Recent cuts in Medi-Cal have affected the operation of the Hospital and have resulted in a significant reduction in occupancy and income during the past year. In addition, the Grand Jury has the following specific comments concerning the operation of Brookside Hospital: (1) Decisions to purchase new equipment appear to be based on convenience and comfort, rather than on a true priority system which reflects the overall needs of the community. An example of this is an elaborate Nuclear Medicine Department . The Department serves many individuals from beyond the boundaries of the District. Prior to the creation of the Departments, patients were required to travel to San Francisco, While it certainly -26- Hospitals, Clinics and Social Welfare Committee performs a life-saving function it isnot clear that there are not other facilities in the Bay Area which have the capacity to give the same services. Since the facility represents a large invest- ment and has a low utilization rate, it appears to be very inefficient. (2) Equipment at Brookside, purchased with public funds, is not being shared by other hospitals in the County. In addition to the Nuclear Medicine Department, an auto-analyzer is being used to only a fraction of its capability. Other hospitals in the County would certainly benefit from this a ui ment . (3) As in many other hospitals, several of the depart- ments at Brookside are operated on a profit sharing basis with professionals or professional groups . Typically, the contracts in radiology, cobalt therapy and laboratory set the income of the professional as a certain ercenta e of an adjusted gross charge P. P g J g g of the Department . This charge is determined by deducting certain ` direct department expenses from the gross billing to the patients . However , a depreciation of department equipment and facilities is not included as .a department expense. As compared to other hospitals these contracts result P P in what appears to be very high fees for the professionals . In fact , one contract has a $55,000/year minimum fee agreement . (4) Patients with an inability to pay are given emergency treatment at Brookside and then transferred to the County Hospital in Martinez . This policy is necessary because the law prohibits treatment without fee of this type of' patient by a district hospital. The result is an increase in cost due to -27- Hospitals,, Clinics and Social Welfare Committee ambulance charges and additional administration effort. In addi- tion, the transfer of a West County patient to Martinez causes an unneccessary burden on the family and a danger to the patient. Brookside has the facilities to treat these patients . Therefore, a County administrative procedure should be established which would allow reimbursement to the Hospital for this service. However, the charge must be comparable to that of the County Hospital. (5) The Hospital is known in the community as Brookside Hospital. However, only "West Contra Costa Hospital District" is �j listed on the tax statement presented to the taxpayers in the District . In order that the citizens of the District may be accurately informed as to where their tax money is spent , only one name should be used. (6) The District has $1,650 ,000 in cash invested in time deposits . The purpose of this cash reserve is not clear. Consider- ing the low utilization rate of the Hospital, it should not be used for expansion as indicated by the Hospital Administration. We certainly hope that it is not the intention of the District to by-pass voter approval and enter into a joint power agreement in order to accomplish its expansion. This would be very unfortunate since two other private hospitals in the area now have low occu- pancy. The District appears to base its desire for expansion on an obsolete report made in 1966 . COUNTY HOSPITAL The role of the County Hospital in the delivery of health services has changed significantly within the past several years . -28- Hospitals, Clinics and Social Welfare Committee The introduction of- Medi-Cal) Medicare and Medical Insurance has . allowed many indigent patients to be treated by private doctors and in private or District Hospitals. The recent state subsidized (90%) mental health program has seen the County Medical Services expand into such fields as acute mental illness, mental retarda- tion, and drug abuse. Because of the unique functions of these new programs, evaluation of its cost-effectiveness of these services is very difficult. The County Medical Services , however, still delivers a significant amount .of traditional services in its clinics and hos- pital : Admissions 1970-71 fiscal year, 12 , 754; Out-Patient visits, 243 ,964. The Committee visited the County Hospital in Martinez and has the following observations : (1) The physical facilities are poor, compared with the District Hospitals. In fact, some of the facilities must be improved for the Hospital to remain certified by the Joint Commis- sion on Hospital Accreditation. The patient rates and professional fees are low. (2) There appears to be very little cooperation between the County Medical Services, District Hospitals and Private Hospi- tals . However, certain laboratory work is performed at Alta Bates Hospital in Berkeley. Recently, arrangements have been established which allows patients from the County Hospital to receive treatment at the Nuclear Medicine Department at the Veterans Administration Hospital in Martinez. (3) The laboratory facilities at the Hospital are inade- quate and the lack of air conditioning may affect the accuracy of -29- Hospitals , Clinics and. Social Welfare .Committee certain tests. A central laboratorywhich could be shared b Y District and Private Hospitals may be the solution to this problem. (4) As is usual, the Hospital is over its budget. This has caused many public confrontations between the County Medical Services and county officials . The 1971 Grand Jury recognized this unfortunate situation and is disappointed in the public officials i involved. SUMMARY AND GENERAL RECOMMENDATIONS (1) Medical equipment, facilities and highly qualified specialists are not being used effectively within the County. Due to the lack of cooperation between district hospitals , County Medical Services and private hospitals, several hundred thousand dollars of taxpayers ' money is being wasted each year. (2) The Comprehensive Health Planning Association of Contra Costa County must assume a stronger role in the coordination of health facilities within the county. (3) The County Medical Services, County Health Depart- ment, and the Coroner ' s Office should be merged as soon as possible. (4) New laws must be introduced which will prevent professionals in district hospitals from using tax supported faci- lities for a profit. (5) We suggest the 1972 Grand Jury continue to investi- gate ti- gate the health services within the county. This is an area which should justify a very high priority. -30- Hospitals , Clinics and Social Welfare Committee t t 1 3 t t s r r Release Date : 12-15-71 JUDICIAL COMMITTEE Leo Armstrong, Chairman Edson B. Fisher Alymer B. Hussey Sal Jimno Arthur Read The 1971 County Grand Jury was unexpectedly confronted with a request and deadline for approval of an additional Superior Court Judge in mid-May. It was referred to the Judicial Committee for evaluation and recommendation. Our research revealed the cost of providing for the additional court would be $110,426 for the initial year , including salaries, rent and $5,000 for furniture and fixtures. The County' s share of the Judge' s salary was to be $9,500, with the State of �ICalifornia making up the salary difference of $23 ,896, for a total of $33,396 . The remaining costs in the amount of $83 ,530, would be paid by the taxpayers of Contra Costa County. In our opinion an alternative should be sought since we were not certain that all of our present courts were operating at maximum efficiency. Approval of a request of this magnitude re- quired our most serious consideration. We had no way of knowing + ; for certain that approving an additional Judge would solve the real problem. As an economy-minded Grand Jury, we could not recommend ' and declined to give the requested approval, believing if there were any options open, they should first be reviewed. In an informative meeting with Presiding Judge Thomas F. McBride, we inquired why the individual department calendar system had not been recently tried in this county. We are of the opinion that it might well prove to be innovative and should perhaps be -31- Judicial Committee tried for a reasonable period of time before a. final judgment is made with respect to adding the costly proposed additional court . In the individual department calendar system, we under- stand that the total number of cases pending on the court calendar could be equally divided among the available Judges. In our county, exceptions could be 'made with respect to Juvenile, Probate and Dom- estic Relations cases . Each Judge would handle the cases assigned to him from g g the very beginning to the conclusion. Each Judge would thus have the opportunity of gaining maximum knowledge and information about a given number of. cases , resulting in many advantages .- For example, when we as individuals visit our personal physicians, dentists or lawyers , we do so with a feeling of confidence. We have the ad- vantage of his knowledge of our needs and requirements . We would deplore the idea of having a. different professional- person, take over our treatment or defense each time we entered an office. When we reverse this situation, we have , Judges who are involved in a number of cases , . moving. from one, to another and continually being ' faced with trying to quickly review the case history of each case. , In May 1971, the rule-setting body of the State' s Courts., the California Judicial. Council, adopted new rules for civil trial juries . This new procedure becomes effective January 1, 1972 and we feel that this will be a great time saver for our courts . We recommend that the same rule be extended to encompass criminal cases and urge our legislators and all concerned to move in that direction- Our Constitution will have to be changed in order for ;�. this method. to be implemented. -32- Judicial Committee Another recommendation we wish to present has to do with continuing a Juvenile Court Judge in that same capacity for several years or more in order to apply the expertise he gains during his first year in this very responsible capacity. The needed continuity will be productive of even greater success in succeeding years. We also recommend that the retiring Juvenile Court Judge ' s eventual successor be groomed for his new responsibility during a period of observation and training to make certain he is prepared. We en- courage continued and expanded use of one or more Juvenile Court Referees by the Court . The Grand Jury considers it desirable that the Superior Court more directly concern itself with the operations of the Probation Department . The issue of consolidation of the courts remains unre- solved and we urge positive overtures in this direction. The extravagance of maintaining three Municipal Courts with relatively light case loads in Richmond is a luxury the taxpayers can ill i afford to continue. In the meantime, it appears that a heavy case load is being carried by the fourth nearby Municipal Court in San Pablo, which has been in need of assistance, For some five years there have been four Municipal Court Judges in West Contra Costa County and one Judicial Court Judge (excluding the Pinole, Hercules, Rodeo and Crockett areas) . By establishing one Municipal Court District in Contra Costa County based in Martinez , and with departments serving four population centers or regions, Judges could be better utilized where and when they are needed. Greater flexibility must be encouraged in order -33- Judicial 33-Judicial Committee to make the most of :our Judge-power.. "'So much '-has been written and said in this regard that we will avoid being repetitious at this point other than to -.urge -immediate steps to -s:tr:engthen our Municipa?-1 'Court ksystem. One economy -recommended under an -.improved court s yst em could provide for :one -Court "Marshall .,for ;,the -entire -county with .;:Deputy -Ma-r.shdlfs ;a-sSi-sting. '.Our 'Mun'icip,41 :Court facilities throughout Contra Costa County are .attractive _.-in :the :main., and,, ,in -fact,, =a acreffit to our ty ,coun' ., The :glaring :exception -.-is the deplorabl1e -court accommoda- tion--s in the beautiful 6c.k . ty 6f 'Walnut fC,.redk,, Zezpw ite a ..eny -sub- stantial amount SOT ;money spent by our �ceun!tty in that city to up.- ,gradethe inadequate -.f acil-1ty. The Va?-lnut -Cre'Eik Uty Council and the Board -6f Sup ervks o,-r,,.-s are urged to -movelexped-ILL'iously tto provide the 'badly --need-ed court facil"1tias- ' Vo urthex time :should .'b,e lost by those re:s.porisible --f-err °.Mdking ;the Jlind,-'Lcated :changes . It :is -recommended Ghat ;the ,.,Court or J.ud*ic-.'Lal 'Council consider the use of a 'SP:ecia'l Referee ,.or .Commls,s,',ione,r in lieu of a .judge in hearing small i&Ia1ms matters and traffic -court- The 'Referee or Comraiss±onetr ,,could end :,one :.d-q�y. �.eadh -week in :.the ;four -eated :that a -c -e fiTthday,, Jit -is ,-sugg, courts :in 'the %county... :.On 'th -,night traffic <court '<be ,'held --a centir-41 location ,probably in :.Martinez.. We believe ;and .--strongly -urge {that our state 1-.eg1:slato1:rs 1,ntroduce and Vigorously :s.upp:o,-rt °enab,,Ling 1egis.1at,,,ion required to reduce 'the :numb-er :,of jurors from '12 to 6 in misdemeanor :cases:. Although the State Bar supported .the -imea-sune., the -State -Senate _34.- J udi c` al 3 4­ Judici1al ,Corrirrfkttee defeated such a bill in April of this year. We further recommend that the number of jurors required to convict or acquit in felony cases, be reduced from a unanimous vote to a vote of 10 to 2 . Our jury system, which needs to be streamlined, is on the threshold of change and hopeful signs are in evidence. A reduction by half in the number of jurors now re- quired for civil and misdemeanor cases and the recommended lesser reduction for felony cases , would not serve to weaken the cause of justice. On the contrary, it would allow for the saving of much valuable time and serve to make the wheels of justice turn more rapidly. In concluding this report , we quote a paragraph from the 1970 report of our predecessors : "There is definite need for a revamping of our entire court system. Procedures must be modern- ized so judges can cope with the rising tide of cases and such changes and improvements are long overdue. We are still working with nineteenth century tools in coping with twentieth century Problems . Our whole society has changed and unfortunately the courts haven't kept pace with these changes . " ---00000--- -35- Judicial -00000----35-Judicial Committee rRelease Date: 11-4-71 LAW ENFORCEMENT COMMITTEE tArthur W. Read, Chairman William C. Beck Henry Cano Grant F. Cotton Sal Jimno Richard J. Kerbavaz Donald E. Perkins The Law Enforcement Committee of this 1971 Grand Jury met shortly after appointment and reviewed past committee reports . IIt was our feeling that more should .be done than a short visit with the heads of only a few of the police departments . The com- mittee undertook to visit each police agency in the county including the security department of the two county college campuses. Our was to visit unannounced meet with the Chief and/or an program / Y of his senior officers that were available, attend a briefing of an T oncoming shift of patrolmen, and then ride with the beat officer. This gave the committee an insight of what actually goes on in our streets today, how the patrolman is trained, and the public reaction 1 to ourg rotection agencies. P Departments/Agencies visited were -- Antioch Brentwood Concord E1 Cerrito. Kensington Martinez Pinole Pittsburg Pleasant Hill Richmond San Pablo Walnut Creek Contra Costa College Diablo Valley College Contra Costa County Sheriff' s Office (including jail, Clayton Facility and other departments) Contra Costa County Disaster Office -36- Law Enforcement Committee In order not to give the impression of rating one city against another, our recommendations will be in a general form as much as possible, indicating how we, as citizens of our county, 1. see it. GENERAL RECOMMENDATIONS We feel there is .a need for standard police officer college training. It is recommended that the Police Chiefs ' Asso- ciation study the possibility of establishing the curriculum that young men desiring to be police officers should complete. The entrance examinations should consist of written, oral, and agility tests exactly .as though he were applying for a job. Upon the student' s graduation he -need only check the bulletin board to locate openings throughout the state and apply. This would save the hiring police department time and money. The new _employee will have had his basic training; only inter-department or :specialized training is needed by ,all departments . More use should be made of the F. B. I. .and other .agencies. , As so ably put by ,a police lieutenant, "When .a team is in a slump, you teach the fundamentals," A routine pickup of prisoners should be conducted by the Sheriff' s Department. This would make it nece:s.sary for all police departments in the .county to have at least a pair of holding cells. 'In the long run it would be cheaper .than tying up .a police -officer in transportation to -the county jail. All papers should be proces- sed by the arresting police department to save time. We suggest portable ;tape recorders in each car. This -37- Law Enforcement Committee would enable the patrol officer to dictate his report (or on the scene remarks) on tape immediately. This would eliminate calling in from a pay phone, or dictating upon his return to the station, or typing/writing his report after completing his shift. Flea markets should be licensed by the cities and county. More checks should be made on the type of merchandise sold. Pri- vate "garage" sales should also be licensed with the applicants stating what is to be sold and for how long the sale will operate. In general, police departments have stated it will help them to know where the sales will be held. The beat officers can check the merchandise. If it is known checks will be made, stolen merchandise is not apt to be sold. In all departments inducement should be offered all ranks ' to improve their status by increased education. The Police Chiefs ' Association has done very well in the Police Officers Standardization Training "POST" program for recruits , but it is now time for them to work up a standardization ' of equipment. We recommend another approach should be taken in adopting the ram helicopter program. After our visit to the cit of Richmond P P g Y 1 and observing the helicopter, we consider it needed and self-sustain- ing. In the central section of the county it takes a minimum of 18 police units to cover the area for which the helicopter was proposed, The helicopter could do this work and guide in the neces- ary ground units as needed. Weather-wise, this area of the county is more suited for a helicopter than San Francisco, Oakland or _ Richmond. We further recommend the helicopter be operated by the -38- Law Law Enforcement Committee Sheriff' s Department for the mutual use of cities and the county. Cities without a reserve force should recruit one as soon as possible. The patrolmen deserve more support and assis tance. A reserve force saves the city/county money and is able to provide more motor units on the streets; this is a crime deterrent in itself. A strong recommendation has to be made however, that the reserve force must be trained and not permitted to be just badge carriers. All city managers, mayors , councilmen, and county super= visors should become more knowledgeable of the police agency operation.- One way is to ride with a beat patrolman at least twice a year during the busy hours. It should be unannounced with the day of the week varying each time. Members of this committee have been in about every situation a patrolman is confronted with in' his day today duties. It is a new world and geeing is believing. It would, we are sure, help anyone to understand what goes on in ' your city/county. This recommendation also applies to future members of Grand Juries., They are a representative .for the citizens of thecounty, and one way to know what is going on in your county is to go and find out. The departments, from chiefs to the patrolmen, welcome your participation. We suggest Municipal Court Judges use the city jails for incarcerating drunk drivers in working off week-end punishments. Pittsburg, Antioch, Concord, E1 Cerrito, Sar!- Pabloand Richmond could handle a set number each weekend. This would relieve Clayton Rehabilitation. and the! jail to handle the felon who needs more control. We do' recagnize that in many cases a city would' haVe to, -39- Law Enforcement Committee ' hire a jailer or police assistant. If the price the county pays to the city is placed against the cost of the required jailer salary, it may not cost the city anything. The drunk driver is not a hardened criminal and should not be treated as one. COUNTY RECOMMENDATIONS This committee visited the county jail and although this establishment and its problems have been reviewed over a period of years, we must go on record with our findings. The jail was built and later modified for a population of 125 . On October 19, 1971 the total men incarcerated was 210 - 70% over capacity. The 1 county' s objective should be the reduction of the jail population through its inauguration of new projects, but a rehabilitation program cannot be accomplished until inmates are found guilty and sentenced by the courts . On October 19th, 15% were serving up to one year sentence , and the balance (or 85%) were awaiting trial. The Rehabilitation Center conversion will relieve some of the prob- lems temporarily. Additional holding facilities must be built as soon as possible. It is inhuman to operate under existing conditions. The Clayton Rehabilitation Center was an eye opener. Work was being performed by paid workers while the taxpayers of the county treated the inmates to a "country club atmosphere" . We believe that work can be done by the inmates with a possible reduc- tion of sentence. It is done for those who attend education classes. ' The security at the County Hospital needs to be improved, one deputy is certainly not enough. There should be one at the -40- Law Enforcement Committee out-patients and at least one at the ward. No doctor should be permitted to examine a- prisoner without a deputy or police officer present for security reasons. We recommend that a classification of jailer be set up for the jail and the deputies now used there be put back in the patrol cars for which they were hired. A jailer because of train- ing and use would not be paid as much as a deputy; thus for the same money, more, security could be provided. This could apply to the Rehabilitation Center and the hospital as well. ' Search warrant obtainment is a determent in the eyes of all police departments. The phone warrant system is not operating. When it takes from three to four hours to obtain a warrant, justice is not served. A list of "duty" judges (and district attorney staff) should be formulated--one East and West county. It should not be necessary to call six or seven judges in order to get a warrant signed. This will be a necessary .part in order to obtain phone warrants when this method is instituted. It should be mandatory that private police protection , agencies in Contra Costa County wear different colored uniforms and shoulder patches than the police in the same area. The police department should screen all the employees for background. Test- ing should be conducted by the police department for the applicant' s knowledge of any laws applicable to their day to day duties . Bicycle registration should be a one time and on a wide basis. This would make it easier to check registered ' county g owners- and make it difficult to transport and sell in a nearby community. There is a bill to be presented in the near future, -41- Law Enforcement Committee making it law that all bicycles be registered by the local city or county on a state-wide basis. In California there were over 85 ,000 bicycles stolen in the first half of 1971 -- the projected value for the year of 1971 is $20,000,000. Needless to say it is time to move into the area of prevention. It is our recommendation that the cities and county of Contra Costa form a committee of law officers , assigned to the "bicycle detail" , to help in drafting a workable bicycle registration law, county wide. IThe probation department should obtain facts from all interested police departments before requesting the court to seal a felon' s file. The court should study all police reports before giving its approval to seal. We recommend the Sheriff's Department assign three patrol Sergeant Supervisors to a shift. These must be filled with at least an acting Sergeant, should there be a vacancy due to illness, etc. To have only two on duty to cover the entire county (and in some cases only one) is not giving the taxpayer protection. Also, the Patrol Deputies deserve better back-up and leadership in the field. Most law enforcement agencies in the county feel that some of the Judges of Contra Costa County are too lenient. In this day and age it is possible more weight should be put on the side of the people. We know of cases where a warrant carried high bail, and for good reason, but . upon a bail hearing it was lowered to below what was recommended by both the People and the probation department. Giving probation on top of probation on top of parole from State Prison is another area that needs more control. -42- Law Enforcement Committee There should be additional ,police service ,and enforce- ment in the areas of E1 Pueblo, West Pittsburg and North Richmond by the Sheriff' s Department. There is a need for more scheduled and continuing practice in the use of firearms for most police agencies of the county. CITIES 'RECOMMENDATIONS ANTIOCH The Antioch Police should be congratulated on their new building. Recognizing that the radio operation is a dual function (police and fire) , we do feel that two male officers are not necessarily required. One male and one female dispatcher would place another patrolman on the street.. The Reach Drug Program is still one of the best we have had occasion to review. BRENTWOOD , Brentwood has a sound operation for a city its size. Their use of reserves result in taxpayers ' savings. It was felt 1 that by using some of the younger citizens in a cadet program, it would be a useful get-together involvement. �(We were pleased to hear that this Police Department started a Cadet Program September 1, 1971. ) CONCORD , Concord should be, congratulated on its program of check- ing school age children away from school after the start of classes. It did prove., daylight burglaries and :truancy were related. If the schools will not monitor their problem, then the police departments -43- Law Enforcement Committee .1 will have to do it. Complaints were heard from some parents at the start because of worries of harrassment and other short sighted arguments. They should be thankful; at least these . parents knew where their children were. We recommend Concord follow this program during the forthcoming school year. EL CERRITO 1 The quarters are part of a safety complex, being used by Police, Fire and Court. Facilities are designed for this purpose and are laid out very efficiently. The corridors from the jail area lead directly to the courtroom. Jail facilities appear to be adequate and properly maintained. The Department has an extensive program -of training within the schools , starting with kindergarten through junior high school and offering a ride-along plan with officers. KENSINGTON This is a unique situation, since Kensington is an unincorporated area within the county. Residents have formed a special Police and Fire district. iPrisoners are transported to the City of E1 Cerrito, held in their jail facilities and Kensington charged on a per diem Ibasis . ' Radio dispatching is handled by the City of El Cerrito on a contract basis. Quarters are new and appear to be adequate. MARTINEZ Martinez has come a long way from its problems of a few years ago. The leadership is strong and the department members -44- Law Enforcement Committee have developed a real spirit of working together. Some of the smaller police departments might take a look at their "horizontal communication meetings.` It is an effective way of solving problems and to work out solutions all personnel are invited to attend. The study made by the California State College, Long , Beach, is a realistic approach. We recommend that the City Council set up a plan to follow the suggestions in the report. PINOLE ' The Pinole Police Department has had its problems this year with dissension and many petty grievances. We ,do not elect to take sides; however, we .feel that it is now resolved with the appointment of a new Chief. We recommend that a study be made regarding a better equipped booking room with at least another holding cell. This , would allow the possibility of holding suspects of both sexes until morning. A micro wave oven and TV meals would .suffice for over- night feeding. Transportation of one prisoner .at a time to the county jail takes a beat car off the street. PITTSBURG Many cities have various programs to get "close" to the teenagers, but this committee wants to give a "well done" to the Pittsburg Police , Department for their program of teaching a high j school class in their station. Indications are the students find the program worthwhile. There should be untold benefits in the ensuing years. . , We recommend a closed walkway be installed from the ,-45- Law Enforcement Committee i ' police building to the court complex. All cars should be fully equipped with screens, shotguns and batons. These cars should be a police type vehicle rather than a converted civilian passenger ' car. We hope that by the time -this report is produced, that Pittsburg is a participant in the Model Cities Program. PLEASANT HILL Pleasant Hill has come a long way with its new juvenile program. Some of their problems should be reduced. We do recom- mend that the city find money to build holding cells rather than being forced to transport each prisoner to the county jail. This problem is similar to those of other cities; it is time consuming and reduces on-the-street manpower. RICHMOND The recent reduction of the police department budget and number of patrolmen will increase their present heavy workload. ' The department employs the use of a helicopter to excellent advan- tage. We had occasion to see it used at first hand. The Reserve Program should be overhauled, and a better training program provided. The city should put some of its resources into the program. An operating Reserve Program would save the city dollars and get two men into a patrol car. SAN PABLO To alleviate the space problem, San Pablo needs to look into a new filing system. A small micro-film file, with the film i being processed outside the department, would possibly be sufficient. The crime factor on vice dictates the need of another full time detective. r -46- Law Enforcement Committee The case load is heavy for a department of its size. ' Shoplifting and burglary are a large part . of this case load. The department quarters are somewhat crowded and additional office j space would be helpful. , WALNUT CREEK Walnut Creek needs to build a more workable police facility. We know that there are some plans for making the Depart- ment part of a new complex, but it is a long time away. A separate , building is in order with the Municipal Court as a tenant. This would give security and stop the unnecessary transportation of every prisoner. to the county jail. Every time the Sheriff' s bus unloads at the Municipal Court, the city has a problem. It is very difficult to understand how the citizens can allow the Police Department to continue to try to operate in a ' facility outgrown ten years ago while finding funds for other civic projects. , It is our hope that the Regional Criminal Justice Plan- ning Board can apply the necessary pressure to obtain the funds to , implement the proposed consolidation of records for the cities of Walnut Creek, Concord, Pleasant Hill and Martinez. This would save the cities money, space, and at the same time give an immediate access to the records. COLLEGE DISTRICT RECOMMENDATIONS DIABLO VALLEY COLLEGE Diablo Valley College has an excellent police apprentice program. The college facility should be aware, however, of a -47- r Law Enforcement Committee deep-rooted feeling among these dedicated young men and women. They are going out in the world as graduates in Police Sciences. They must be allowed more latitude and provided with more equip- ment. They provide security at a real savings to the taxpayer. CONTRA COSTA COLLEGE iContra Costa College has no security whatsoever within itself. We recommend that the college adopt a police apprentice 1 program along the lines of Diablo Valley College. It was shocking ' to learn that security was handled by one custodian only, from 10 :00 p.m. to 7 :00 a.m. The apprentice program could help in security as well as traffic and parking problems. ' COUNTY DISASTER OFFICE RECOMMENDATIONS This committee recommends that the County Disaster Office remain as a separate district of the county. There has been some 1 discussion that this function should return under the direction of the Sheriff. The name "Disaster" should be discontinued and the ' name of Office of Emergency Services used. The emergency services ' cover a wide range. There are cost savings to the taxpayer in many of them when used properly. The advance weather reports and ' possible fire threats , equipment availability, are just some of these services. This department still operates with the same size staff in 1971 as it did in 1958 -- 20 personnel. Overtime worked in the past ten years is approximately 8,400 hours and if these people were paid, as the other county employees are, it would amount to over $100,000. Figures quoted to us indicate that it only costs the county taxpayer 1 mill of the tax rate to operate -48- Law Enforcement Committee this function. The federal and state governments are the major , contributors. Communication equipment must be replaced as it was obsolete four to fiveears ago. If we have a ma"'or disaster, Y g J 265 people are required . to handle the Disaster Headquarters. The present building will hold only 100, and then only if the garage is empty. There is land and federal money available for a new ' building and equipment. This committee -recommends that the Board of Supervisors take some action in this matter and solve the prob- lem before it is too late. There are at present two 200 bed emergency hospitals stored in warehouses in this county. Due to the need of one stor- age area, the county is in a position to lose one of. these set ups. We have available to us another 12 emergency hospitals., but are unable to accept because of lack of storage space. , We recommend that the county communications system be' split. The Sheriff' s system should be separate. Dispatchers should ' be placed in the Disaster Office on a 24 hour basis to handle ambu- lance, fire, public works, animal control, and all the other systems now handled by the Sheriff. The Disaster Office is only open until 5 :00 p.m. The taxpayer is entitled to better service. We recommend that the Communications Technician be ' removed from the Sheriff' s Office and put under the jurisdiction of the Disaster Office. We recommend that a long range communica- tions plan be developed and implemented as soon as possible. A severe earthquake could wipe out the present system. WE FIRMLY RECOMMEND on behalf of the citizens of this ' county, real, honest, trained and fast ambulance services. We feel l -49- Law Enforcement Committee. what we have now is a farce. The. Department of Transportation will provide all the equipped ambulances that this county requires FREE OF CHARGE It is our understanding s that this has been presented before, but a few public officials have declined to check out the possibility of a PUBLICLY OPERATED AMBULANCE SERVICE. The Department of Transportation will provide the units, radio equip- ment and also pay for the necessary training. The Consolidated Fire District covers about half of the population in the county, ' and is situated in the area suited for this type operation. We recommend that it be started here in order to develop statistics for its operation in the balance of the county. The Director of ' the Disaster Office can provide the Board of Supervisors all the details and statistics for their consideration in this matter. ' We recommend that the county hospitals should have a better method for picking up out-patients, than paying for and ' tying up the ambulances required for emergency runs. As an example, with a little effort and forethought, it is possible that the small van type school buses could be used during y the da after school has commenced. We recommend the 1972 Grand Jury investigate the County Disaster Office and its -uses to the citizens of this county. It is possible that this county function could and should be given more latitude in which to operate. l CLOSING We wish to thank all persons, Chiefs, officers, patrol- men, or civilian employees, for the reception accorded to us. Our ' -SO- Law Enforcement Committee visits were genuinely -welcomed. All questions -asked by us were , answered forthrightly. We found all officers, especially the younger, are dedicated -and :intend :,to make life 'time careers. The ' citizens of all �cfties :and the ;County of Contra Costa should be thankful for these :m oun en.. 1 Y .g i 1 1 1 1 i 1 1 - 1 '.Law ;Enforcement 'Commi.t:tee Release Date: 11-24-71 SUPPLEMENTARY REPORT ON LAW ENFORCEMENT BY CONTRA COSTA COUNTY GRAND JURY This Grand Jury, after continuing investigation into the operation of the Contra Costa County Jail at Martinez and the Contra Costa County Rehabilitation Center at Clayton, report our findings as a supplement to our previous report on "Law Enforcement. " 1. We are deeply concerned over the security, or rather the lack of it, in the selection and supervision of prisoner work crews while working outside detention facilities . IA. We found little or no screening of prisoners selected to work on prisoner work details insofar as their criminal records or background were concerned: only their cooperation as "workmen" being considered. This is due iin part to the fact that the Rehabilitation Center does not receive the criminal records of their prisoners ("rap sheet") when transferred to the Rehabilitation Center. The probation report, if any, on a prisoner usually does not arrive until weeks after the prisoner. Because the Rehabilitation Center is a minimum security facility it is presumed by our officials in charge that an prisoner sent there is not a security g Y P Y risk nor represents a threat to the public even while working on civil job work crews. Any prisoner, regard- less of his criminal record, may be placed on a prison work crew by a civil clerk subject only to a night PP deputy's a royal--with no knowledge of the prisoner' s ' record. -52- Law 52-Law Enforcement Committee B. We found the supervision and surveillance ' given prisoners while working under a civilian suervisor to be casual even for a civilian workman ' P and when applied to a work crew of prisoners, this borders on negligence. Prisoners assigned to a work detail are turned over to the custody of a "deputized" civilian supervisor who is responsible for them until ' they are returned to the Rehabilitation Center. This supervisor, while technically deputized is not ' considered to be a policeman, nor is he given any special training, instruction, or even written regu- lations by which he could be guided in providing ' adequate surveillance to prisoners. He is not allowed to carry arms of any kind, nor does he have any , knowledge of the criminal background of the prisoners on his work crews for which he is responsible and has ' custody. We therefore conclude that the present ' method of selecting and supervising prisoner work parties is lax, providing inadequate security to the public, and urge the Sheriff of Contra Costa County to i promptly correct this method of operation. 2 . We are equally concerned over the lack of adequate ' security within our county jail at Martinez. Under present condi- tions of severe overcrowding and the general inadequacy of our jail, a prisoner is placed in jeopardy when put in our county jail. A new prisoner is all too often subjected to brutal sexual and -53- Law Enforcement Committee physical assault by other prisoners while confined within the jail. A. We believe it absolutely essential that segregation of prisoners be made in .order to avoid confining prisoners awaiting trial and prisoners charged with minor or non-violent offenses together in the same cells with prisoners charged with more serious crimes of violence and convicted criminals with records of violence. ' B . We also find that considering the serious overcrowding of our jail it is all the more necessary for even tighter security by jailers. Their duties as jailers include the protection of prisoners from ' each other as well as keeping them in secure custody. Faced with the responsibility of running an inadequate jail, our Sheriff should be using the best help he can get as jailers. We must conclude with the opinion that the present practice of "breaking-in" new deputies, by assigning them to the jail, cannot 1 be justified considering the results. -54- Law Enforcement Committee Release Date: 12 -2-71 PLANNING AND PUBLIC WORKS COMMITTEE ' Grant F. Cotton, Chairman William C. Beck Peter A. Veitch Arthur Wagstaff PUBLIC WORKS DEPARTMENT This committee met with the Director of Public Works, Mr. Victor Sauer and some top members of his staff and was given all the aid possible in the limited time at our disposal, to get a quick overall look at the various facets of this department' s area of endeavor, and concluded this department is indeed in capable hands. Economical methods and time saving systems were apparent in every direction. We reviewed the "Areawide Topics Plan" with the Director and personnel involved, and consider it a valuable project for the county. "TOPICS" (Traffic Operations Program to Improve Capacity and Safety) is a federal program designed to increase capacity and 1 eliminate hazardous conditions on secondary roads; the government pays 71% of the cost. "TOPICS" was a provision of the Federal-Aid Highway Act of 1968, and the costly delay has added to the tax- payers ' burden. We urge our congressmen to continue making further effort to expedite this program for the county. ' Field trips were made to the airport, passenger vehicle maintenance facility and the heavy equipment garage. The latter is not adequate for the number of units that require service, and plans to correct this situation should be expedited. Approximately twenty acres of land have been purchased near the Animal Control Center, and a new yard will be constructed when funds are available. -55- Planning and Public Works Committee At that time all other facilities except Brentwood will be phased out which will make for improved efficiency and lower operating costs. The Public Works Department is to be commended for its , ecological and aesthetic viewpoint regarding various programs in the county. Through cooperative .efforts with utility companies, overhead wires are being undergrounded, streets widened in critical locations and attractive landscaping installed, so that the end , result is a tremendous improvement in the area involved. One program outlined by V. L.VLCline, now in the planning stage would appear to have great potential. Side paths along ' county roads, utilizing the ten foot borders of highways by build- ing pedestrian paths, bicycle paths, and where practical, horse trails are planned. It is expected trees will be planted between the road and the equestrian trail for protection of users as well as aesthetic appearance. The Board of Supervisors has been coopera- tive, in regard to ecology projects. We recommend they make plans for funding the side path program as soon as possible, so the r present pilot plan in the Public Works Department can be completed in the near future. By collaborating with the Audit and Finance Committee, it is apparent some improvement should be made in the handling of receipt books and cash receipts as recommended by Ernst & Ernst , Report on the Public Works Department. BUCHANAN AIRPORT In 1969 the Board of Supervisors authorized a "Financial -56- Planning 56-Planning and Public Works Committee and Management Analysis and Recommended Lease Policy" pertaining to this airport. The report was prepared by Peat, Marwick, Livingstone & Co. , well known experts in this field at a cost to the taxpayers of ten thousand dollars ($10,000) (Exhibit "A") . Copies were sent to several state agencies, and we refer to a letter from the State of California Business and Transportation Agency dated July 31 , 1969, signed by Joseph R. Crotti, Director (Exhibit "B") . It states that "Adoption of recommendations will improve airport records and will put economic operations on a business-like basis." With this expert advice at hand, it is not unreasonable to expect the Board of Supervisors to use it to better advantage. The importance of Buchanan Field has grown greatly over the past fifteen years, but future expansionansion is limited. If com- mercial activity requires expanded airport facilities, other areas in the county must, be considered. The Airport Liaison Committee reports to the Board of Supervisors and the Airport Manager reports to the Public Works ' Department. This is very poor organizational form. It is apparent ' this condition creates many misunderstandings and causes friction. There is a definite clash of personalities between management, aircraft owners, fixed based operators and the Public Works liaison personnel. After meeting with members of the Liaison Committee, it ' is rather difficult to separate the wish to improve airport ser- vice, from troubles that stem from personal dislike of the Airport Manager. Installing a new manager would not necessarily improve the efficiency of the airport nor would it attract new industries -57- Planning and Public Works Committee and business, unless he had complete control and was responsible to an Airport .Commission appointed by the Board of Supervisors. It is difficult to understand why there is no security ' at night with such valuable property simply tied down and very , accessible. Insurance rates might be reduced if security was. assured. ' In conclusion we recommend: 1. That the Contra Costa County Airport Master Plan be , updated. (Nothing has been done in this respect since 1950) 2 . That Buchanan Field be managed on a. twenty-four hour basis. ' 3. This committee cannot understand how depreciation can be shown on an annual report pertaining to property donated by the federal government, and on which replacement is expected by the same federal agencies. This should be corrected by the adop- tion of a true Enterprise accounting system. ' 4. We recommend that fuel and services be put out to bid and limited to one operating firm, with hours of service t. specified. 5. We recommend the Board of Supervisors place the air- , port under the management of a special airport commission to ' supervise Buchanan Field and any future airports . PLANNING DEPARTMENT We met with the Director of Planning, Mr. Anthony A. ' Dehaesus on two occasions and discussed at some length the various complaints we had received, and also went into detail regarding -58- ' Planning and Public Works Committee 1 ' his thinking in relation to personnel. We are of the opinion he ' is not close to the situation and is not aware of some of the problems of taxpayers which are causing poor public relations. ' However, because of continuing citizens ' complaints regarding this department, we felt it necessary to make an intensive check into the various criticisms received during the year. We talked at ' length with individuals, builders, both large and small, contrac- tors and trade organizations representing these people. Without ' exception they all seemed to feel there was a definite lack of public relations or understanding emanating from the Planning Department. The impression is definite that on many occasions an arbitrary attitude is adopted by personnel when dealing with the public. ' We were advised that at present there is no established method of evaluating employees as to qualifications on a regular basis. If such a plan was initiated it might well eliminate some of the offending personnel that are causing problems for the department. It is realized that planning in any area of government ' is one of the most sensitive agencies, and therefore requires an extremely well qualified person to run it smoothly. In conclusion we recommend a reorganization of the ' Planning Department which if it is to function properly must have stronger and more capable management. FLOOD CONTROL DISTRICT We met with Mr. Carl Rich and his deputy, J. E. Taylor, at the district office for several hours and were indoctrinated -59- Planning and Public Works Committee into the many functions of flood control. Subsequently we made , field trips to every part of the county with Mr. Rich to inspect various projects of the past, present and future. ' We believe Mr. Rich has done a very commendable job of flood control in the county. He has been successful in procuring ' federal funds in the past fifteen years to a point where the main problems have been resolved. We believe consolidation of public works and flood con- trol on trol would be advantageous if the proper procedures are implemented. We discussed this matter with the County Administrator at some ' length on several occasions and certainly he has a vast knowledge ' of this subject which goes back to 1958 when he first recommended it. Affecting such a consolidation is far more complicated than the layman realizes , and it should progress in the proper sequence. Finally, we believe the approach at this time is to consolidate the Contra Costa County Storm Drainage District with ' the C. C. C. Flood Control and Water Conservation District through legislative action, as outlined by the County Administrator. In ' this matter it would proceed as follows : 1. Develop in draft form for submission to the State ' Legislature required changes in the statutes; this proposal has ' been under review for several months and the studies are being continued so that legislation may be introduced in 1972 if approval t of all parties concerned is obtained. 2 . Make legal provisions (less complicated than at present) for. the establishment of flood control zones (major drain- age basins) , and drainage zones (minor drainage basins) , and changes -60- ' Planning and Public Works Committee in the boundaries of such areas. 3. Make specific legal provisions for the dissolution of the consolidated district and its zones. 4. Include in revised legislation permissive provisions for landscaping and recreation facilities- adjacent to flood control facilities. 5. Provide in the legislation for the relocation of utility lines at the expense of utility companies under justifiable circumstances. 6. Set maximum tax rates at a reasonable level in the law taking into account preliminary engineering costs, construction tand maintenance costs , the cost of review of subdivision drainage, and the cost of other district functions such as hydraulic analyses of bridge openings . 7 . Include legal provisions for public hearings and set by law petition requirements (on protests to force abandonments , dissolutions and elections) in a percentage proportion such that a small minority of objectors may not force the cancelation of desirable programs and projects. 8. Make arrangements to dissolve two existing storm drain maintenance districts (set up under separate provisions of the law) and convert them to drainage zones. -61- Planning and Public 'Works Committee In tho Board of Supervisors of Contra Costa County, State of California June 24 , 196-. In the Matter of Master Plan Study, Phase II, Buchanan Field Airport, Concord, California. the Board on October 1, 1968 having authorized the firm of Peat, Marwick, Livingston b Company, Airport Consultants, International Airport, San Francisco, California, to continue with Phase 11 of tf�e Master Plan Study consisting of a financial, operations and management program for Buchanan Field Airpor.t, Concord, California; and Mrs. Shirley Swanson and Mr. William Parker, representatives of said firm, having this day presented and briefly reviewed said study entitled "Financial and Management Analysis and Recommended Lease Policy"; NOW, THEREFORE, on motion of Supervisor A. M. Dias, seconded by Super- visor E. A: Linscheid, IT IS BY THE BOARD ORDERED thatreceipt of said study is ACKNOWLEDGED and same is REFERRED to its Public Services Committeeuperv�(Supervisors Dias and E. A. Linscheid for review and report to the Board. IT I'S BY THE BOARD FURTHER ORDERED that the Public Works Director is AUTHORIZED to distribute copies of said report for informational purposes to the County Departments, the Contra Costa County Aviation Liaison Conlnllttee, Buc— afi nan Field Fixed Base Operators Association, the Aeronautics Division of the State of California Transportation Agency, Federal Aviation Administration, Contra Costa _Taxpayers Association, Contra Costa County Development Association, members ofi the Press, and others with an interest in the Airport. The foregoing order was passed by the following vote of the Board: AYES: Supervisors J. P. Kenny, A. M. Dias, T. J. Coll, E. A. Linscheid, J. E. Moriarty. NOES: None. ABSENT: None. I hereby certify that the foregoing is a true and correct copy of an order entered on the. minutes of said Board of Supervisors on the date aforesaid. cc: Committee Witness my hand and the Scol of the Board of Public Works i2) '� Supervisors County Administrator offixed this 24th day of June W. T. PAASCH, Clerk ,;le Deputy Clerk Mildred 0. Ballard EXHIBIT A t -62- STATE: OF CALIFORNIA •vn1SINESS ANI) TRANSPORTATION AGENC a I.H.r:rrr/f-7f h+ r+m•rdn Err•nt11r Aryst RONALn RM;ACAN aa..rsn•ntn, /:+trtrnnl.t)Sii Govwrnnr 91 -SIS-25t ,r t„ D DEPARTMENT OF AERONAUTICS AUb4 PUBLIC WORKS DENAR[MENT JUL 31 1969 Mr. Victor W. Sauer Public Works Director Contra Costa County Martinez, California 94553 Dear Mr. Sauer: We have received and reviewed your report regarding the financial and management analysis, and the recommended lease policy for Buchanan Field, and offer the following comments: The report is generally very good. Adoption of recommendations will improve airport records and will put economic operations on a more businesslike basis. Airport income should improve and a long range development program can be more realistic. Treat- ment of all tenants will be more equitable which. should reduce conflicts on the airport. The organizational difficulties which have beset Buchanan Field are very well spelled out in the report. The "Committee" system which has been in effect has seriously affected operations and has, at times, almost stifled efforts toward any long range planning. The voice of the professional airport manager was often drowned out by the "advice" given to the Board of Super- visors by a committee which had no responsibilities for carrying out any of its own recommendations, or for the results of putting them into practice. Rather than compound this error with the addition of still another "advisory" body, it would seem more prudent to: 1. Establish a Department of Airports with the Director \ reporting directly to the Board of Supervisors. 2. Make the Director responsible for all airport management and operations in the county. EXHIBIT "B" -63- MBMBIR NATIONAL ASSOCIATION OF STATIr AVIATION OFFICIALS Mr. Victor W. Sauer Page 2 3. Give him the authority to carry out this responsibility under the direction of the Board. 4. Designate two Supervisors as an Airport Committee of the Board to work with the Director on matters of broad policy. This kind of organization would result in more efficient day to day operations and allow more orderly long range planning. If we may be of further assistance, please call upon us. Sincerely, JOSEPH R. CROTTI Director ■ -64- A MINORITY REPORT BY ARTHUR WAGSTAFF As a member of the Public Works-Planning-Flood Control Committee I find myself unable to endorse the Committee' s report. In my opinion it would require much more time than we were able to devote to the study of these departments , plus the hiring of professional assistance, to produce a report behind which the Grand Jury could take a firm stand. -65- Planning and Public Works Committee Release Date: 10-28-71 PROBATION COMMITTEE Alymer B. Hussey, Chairman Leo Armstrong William C. . Beck Mrs. Bernice Lasell G. Stewart Paul The objective of Contra Costa County' s probation system should be the rehabilitation and return to society of the optimum number of juveniles and adults whose problems and offenses have brought them under the supervision and control of that system. Comments or recommendations made herein are the result of that point of view. We believe that everyone, at whatever level of county or city government they may be working, who has any relationship to the problems of delinquency and crime should accept this objective as the final goal of their own actions. r Anyone unfamiliar with this subject might assume that Y J g rehabilitation is the exclusive concern of the County Probation Officer and his staff. It is not so.' A great many other people ' are involved such as : The Board of Supervisors, The ten Superior Court Judges , The Juvenile Justice and Delinquency Prevention Commissions, The Social Service Department, The Sheriff's Department, The Justice and Municipal Courts , The City Police Departments , The 800 licensed Foster Homes in the county, The fifty or more private and volunteer organizations , both within and outside the county, who offer rehabilitation, treatment and support services, Also the Federal and State governments which offer programs and support services to the counties. Combating delinquency and crime with rehabilitation -66- Probation Committee I� programs is a very complex problem involving many persons and units of government who are relatively independent of each other . Success in this effort requires the constructive and wholehearted �. understanding and cooperation of all. To the extent that anyone takes expedient action based upon a narrow personal point of view, the efforts -of others will be minimized, even nullified. At the risk of our seeming naive to expect so many people to voluntarily integrate their individual efforts effec- tively, we unequivocally state that it is the county' s only hope of real and significant progress in the rehabilitation of its delinquents and criminals . It is also the only hope for control- ling the rapidly rising cost of such offenses in the county. We will refer back to these ideas at various times later in this report. ^ One further comment is necessary to make clear the manner in which the Probation Committee approached its investiga- tory responsibilities. We did not visit every facility nor inter- view every possible person or group that is involved in probation matters . We chose areas of probation activity in which there might be the greatest need for or opportunity to effect g g � Y i mprovement. PROBATION FACILITIES Group Homes There are five group homes for boys; four of which are { at Las Trampas Youth Village located in Bollinger Canyon at 36 Holly Court, San Ramon, and the fifth is the Walnut Creek Group r� Home at 2870 Kinney Drive. Group homes for girls are maintained . -67- Probation Committee by a private agency, Youth Homes, Inc. The intended purpose is to furnish a "home-like" atmos- phere in which six boys live under the care of a "house mother" and the supervision of a Probation Department staff member. The boys attend local community schools except at Las Trampas Village (Bollinger Canyon) where some schooling is provided on the grounds when needed for individual boys . Las Trampas Youth Village (Bollinger Canyon) The San Ramon address of this group of homes is mislead- ing. They are located deep in Bollinger Canyon, about eight miles northwest of the town of San Ramon on a former Nike missile site which the county is in the process of acquiring from the federal government . The site involves some eleven acres of land and other buildings. The five houses now used as group homes were the residences of missile crew officers . We are told the other build- ings on the site are not in usable condition and that the cost to make them so cannot be justified. We are also told that the original concept in 1966, when the site was taken over, was to create another Boys ' Ranch similar to the present one at Byron. This appears to be an extremely remote possibility at this time. �- This Grand Jury, as were preceding Grand Juries, is convinced that their operation is far too costly to justify their indefinite continuance. Based on budgets for the period ending June 30, 1971 and the stated population capacity of each facility, the cost of operating this facility compared to others is as follows : f -68- Probation Committee Bollinger Canyon - $1,200 per month per boy Walnut Creek Home - 760 " Byron Boys ' Ranch - 682 " Juvenile Hall - 786*" it if *Based on actual average daily population _ of 161 during 1970. Stated capacity is 85 . These figures speak for themselves. We recommend that plans be made now to phase out the Bollinger Canyon homes as early as possible and to replace them with equal or better homes where the boys can live and attend school in a normal community rather than in isolation. We make no judgment on the Board of Supervisor' s origi- nal decision to acquire the missile site. That is history. The land' and buildings are said to have a value approximating $90 ,000.00. Some use by the county was necessary to start the acquisition process and the use of the cottages as group homes was the most attractive idea at the time. But this use has been con- . tinued far too long with, apparently, little effort made to find another. Again, let us look at the economics of the situation. Assuming the excess cost to be $400.00 per month per boy (a figure justified by the cost comparisons above) , our annual excess cost is 400 x 24(boys) x 12 (months)=$115 ,200.00. Thus, the excess costs appear to exceed the value of the property each year of operation. The need to eliminate this budget drain and taxpayer burden is critical and corrective action ought to be started at once. The physical appearance of the cottages and grounds were unattractive. Uncut grass and weeds were everywhere. It was -69- Probation 69-Probation Committee obvious that the maintenance of this property is carried on barely above the level of neglect. If we are trying to give the boys a home-like atmosphere, we should also give them home-like rl work assignments . There is no logical reason why each boy should �! not have some home duty or duties to perform daily, including grass cutting and weed pulling. A summer time vegetable garden would provide fresh food and a healthy, constructive therapy for them. Walnut Creek Group Home Except for its location and lower cost per boy, this home is subject to about the same critical comment as the Bollinger Canyon homes. The home is located in an acceptable neighborhood of private homes. While the committee did not interview any of the neighbors, there is reason to believe that is is generally accepted by them. However, this does not mean that the good will of the neighbors is assured on a continuing basis unless the home is maintained in keeping with the standards of the neighborhood, or 2N if the boys ' conduct is not properly controlled. Whether or not a home-like atmosphere exists in this house is open to some question in view of the dilapidated condition f of almost every piece of furniture in it and the deplorable condi- tion of the rear yard. When the house was visited in late March, the rear yard was a jungle of high grass and weeds and defaced by the presence of a collapsed plastic wading or swimming pool and general disarray. While a system of rewards for good conduct and penalties -70- Probation Committee for poor conduct was in use, there was no apparent program of UN assigning specific daily chores around the house to each boy. Here, again, an opportunity for healthy work therapy and responsi.-�, bility training is being missed. It was mentioned to the committee by the home supervisors that there had been some unfavorable remarks made by neighbors against having a car parked on the street all day bearing the county seal identification. The presence of the car raises ques- ,` tions by the neighbors ' friends who come to call and this stamps i the group home as something abnormal in the community. We recom- mend that some way be found to overcome this factor, which is an embarrassment to the boys as well, by perhaps providing a means of covering the county seal while the car must be parked there or finding a nearby vacant garage in which it may be stored during the day. General Comment on Group Homes The Group Home idea is to place delinquent boys who do not need the tighter controls of Juvenile Hall in a home-like atmosphere approaching that of a real home. We seriously question whether this purpose is being achieved. First, there are no "parents" , such as a married couple would represent, in the home. The house mother is present 24 hours daily with minimum authority while the home supervisor who carries the maximum authority is present normally only eight hours. Second, the house mother and supervisor are unrelated family-wise and their supervisor-subordinate relationship is far from being representative of real parents or even foster parents. -71- Probation Committee This fact is not lost on the boys. The atmosphere at the homes is probably little different from that in the public schools they attend during the day - constant supervision without the precept and example of marital and filial love. They are living a system- atized life, not a family one. This is not the fault of either the house mothers or home supervisors. They are all sincere and dedicated people who are filled with compassionate concern for delinquent youths. We respect them for it and commend their efforts. It is the inherent weaknesses of the basic idea which cause it to fall short in the effort to give these boys a true home-like atmosphere. We will have more to say about this when we discuss the use or non-use of foster homes. Boys ' Ranch at Byron This is a minimum security facility of good quality with a capable staff. Its stated capacity is 65. The Probation Depart- ment reports an average daily population of 60.6 during 1970. Because of its superior quality it would seem desirable to keep it operating at full capacity, or somewhat above, in view of the extreme overcrowding at Juvenile Hall. �- The principal disadvantage of this facility is its remote ' location away from the county's major centers of population. Much time and money is spent in traveling between the Ranch and Martinez �i. and the western sections of the county. Furthermore, the distance and lack of public transportation creates a major obstacle for some �! families wishing to visit their sons. Equally serious is the transportation problem for those boys who work part of the week and -72- Probation Committee serve time at the Ranch the balance of the week. Most of the available work is in the western county area. Since work/furlough programs are increasing as. a produc- tive means of ,rehabilitation, we believe that another facility similar to Boys Ranch is needed in the western side of. the county. The term "ranch" is a misnomer, suggesting wide open spaces, and one may wonder where such land is to be found in the west side. It is the nature of the facility that is important, not its geographical scope. At Boys Ranch, the boys are given specific work assign- ments in addition to their schooling, counseling and recreation. They mow lawns, weed and trim, and do other maintenance work with- - ` in their abilities. This is in sharp contrast to the lack of such assignments at the group homes. Juvenile Hall-Martinez Section 851 of the Welfare and Institutions Code provides: "The juvenile hall shall not be in, or connected with, any jail or prison, and shall not be deemed to be nor be treated as a penal institution. It shall be conducted in all respects as near like a home as possible-" (Emphasis ours Contra Costa County' s Juvenile Hall falls so far short of provid- ing a home-like atmosphere and is built and operated so much like a jail, that we can only consider it to be in complete violation of the Code. This facility was designed to house 85 persons when built in 1950. During the year 1970, it had an average daily population of 161, 189% of design capacity. The highest -73- Probation Committee population occurred in February 1970 at an average of 210 which is 205% of intended capacity. The crowding is so great that three boys (or girls in the girls' wing) sleep in a room (cell) �i intended for one. Since the rooms are too small to hold three cots, one boy must sleep on the floor, his mattress being stored 'I under one of the cots during the day. The ventilation and heating are poor and, as at the group homes , the maintenance is at a low level. As a result, conditions in the boys ' section border on the inhuman. Committee members visiting this facility for the first time felt ashamed and embarrassed. The condition has been reported in numerous Grand Jury reports in recent years so no pur- pose will be served by repeating the sorry details beyond what has Lbeen said above. Suffice it to say that locking a boy into one of these cells is not a first step toward his rehabilitation; it is more likely to be a step toward more serious offenses against society in the future. Conditions in the girls' section of the Hall are not materially better. The Girls ' Residential Treatment Center, which is the third section of Juvenile Hall, stands in marked contrast to the other two sections. The space occupied was completely remodeled and renovated in 1969. It is clean, well lighted, properly venti- lated and tastefully decorated. The program in this Center pro- vides formal schooling, training in homemaking, counseling, preparation for employment, free-time activities and family involvement. This is the most constructive effort toward true -74- Probation Committee r rehabilitation that the Committee has seen in all of its institu- tional visits. . It was shocked, therefore, to read the following comment in. the County Administrator ' s 1971-72 budget submission to the Board of Supervisors referring to Juvenile Hall: "Some relief from the constantly overcrowded facilities has - been gained this year by reducing the Girls ' Treatment Center .Program and using the vacated rooms for detention of delinquent girls." This is not. progress; it is -retrogression! With regard to new commitments to Juvenile Hall, the Probation Committee is unanimously and firmly of the opinion that boys taken into the Hall for the first time who have not yet been adjudged delinquent must not, under any circumstances, be placed in a _cell with boys who have been so adjudged. A boy may have shown some delinquent tendency, but until he is legally declared , delinquent, no contact with a delinquent boy should be permitted. Delinquency, in a sense, is a disease which spreads rapidly through personal associations. On September 26, 1971, there were 81 delinquent boys and �1 49 delinquent girls, a total of 130, in Juvenile Hall. This is a , gratifying decrease from the peak population of February 1970, but it is still 45. above the Hall's design -capacity.. If new programs are instituted and actions taken, fully utilizing existing programs , including foster homes, the overcrowding of the Hall .can be eliminated. We recommend that no boy or girl be detained at Juvenile Hall longer than 21 days. This should ,be adequate time in which to process the child' s case and place him or her in one of the -75- Probation Committee programs outside Juvenile Hall. Of the 81 boys in the Hall on September 26th, 21, or 25%, had been there in excess of 21 days. Of the 49 girls being detained, 24, or 50%, had been there over 21 days . Two boys had been there 151 and 168 days , and two girls were there 110 and 117 days respectively. Admittedly these were #, difficult cases to place. Nevertheless, we are convinced that if all agencies involved within the county were working together as closely as they should, these cases could have been disposed of in much less than five months. The Probation Department - General ' Organizationally the Department seems to be well set up and staffed with capable and dedicated people. While we found some differences of opinion between line and staff personnel and between management and union as to policy, operations and programs, we found no evidence that these differences lessened anyone' s cooperation or dedication. Through the medium of branch offices, the Department brings its services into the various population centers of the county. We feel that the hours of a probation officer must be flexible; it is not an 8-5 job and the Probation Department should not close down completely at 5 :00 p.m. Problems are not limited to an 8-5 period. Services should meet the needs of the people. The committee's greatest concern is that the Department is not adequately staffed to fulfill its purposes. Probation officers are overburdened with cases and investigations. It is patently obvious that if there is to be rehabilitation of offenders , the probation officers must have adequate time to devote to each �i -76- Probation Committee case. The number of investigations they are asked to perform should not deny them that time. The work load standards set by the County Administrator. are as follows : Investigations Cases under Supervision per Deputy per Deputy per month per month Adult Division 20 130 Juvenile Division 20 80 Investigations are conducted by Deputy Probation Officers to develop background information on persons who are before the Court for specific offenses.. The information developed is used as a basis for decisions by the Court as to whether or not such a person may be. safely placed on probation in lieu of jail, and, if so, under what terms and conditions. The Deputy must search out every possible source of information, interview family members, friends, neighbors, employers, priests or ministers, teachers , etc . , �. until he is satisfied that his information is reliable and suffi- cient to form a basis for an action recommendation to the Court. At present, in this county, he does this work practically alone ' with little, if any, clerical assistance. "Cases" are persons on probation who have been assigned to a specific Deputy Probation Officer for supervision. Some proba- tioners require more intensive supervision than others depending on the severity of their offense and the prescribed conditions of the probation order. When properly performed, this supervision requires the Deputy to make personal visits to the probationer' s home and place of employment, to interview other persons -when necessary to -77- Probation Committee. I learn how the probationer is conducting himself in the community, to counsel him when circumstances warrant, and to assist him in solving problems that arise which he seems unable to work out alone. Investigations and Case Supervision are very time consum- ing activities. Professionals in this field consider a work load of 35 to 50 Cases and 6 to 10 Investigations per Deputy per month to be a proper work load. When such excessive work loads are assigned, as is done in Contra Costa County, something has to "give" . Since the investi- gatory work is so important to the Courts ' handling of their cases, it is usually done to the best of the deputy' s ability. It is, then, the supervision of probationers that is inadequate for lack of time and clerical assistance. Probationary supervision properly performed is vital to the whole rehabilitation effort. �. In preparing their 1971-1972 fiscal year budget for sub- mission to the Board of Supervisors, the Probation Department requested the following additional positions : 15 Deputy Probation Officers 3 Probation Supervisors 23 Clerks and typist clerks 1 Training Officer 6 Probation Trainee positions 1 Adult Probation Resource Officer (To develop employment and educational resources for probationers. ) 1 Adult Probation Jail Liaison Officer (To assist probationers with jail terms as a condition of probation. ) 2 Delinquency Prevention Officers (For expert guidance to local groups and with special emphasis on drug abuse, coordinate delinquency prevention efforts at the local and county levels. Also to work closely with the Delinquency Prevention Commission. ) Total - '52 -78- Probation Committee When it was passed along to the Board of Supervisors, the County Administrator recommended only 12 positions: 7 Deputy Probation Officers, 3 typist clerk positions and 2 Probation Supervisors. The balance of the request was left up to the Board as "policy" decisions. The Board of Supervisors voted negatively on both policy matters thus giving the Probation Department only the 12 additional positions recommended by the Administrator. In rejecting 77% of the Probation Department ' s request, I the Board seems to have paid little attention to some significant comments made b the Administrator in his submittal. For example: Y P "As can be seen from the work load statistics shown. above the activities for which the Probation Department are respon- sible are continuing at the rapid rate of increase that has been prevalent for the last few years. . . "In addition to the change in juvenile cases,. the. adult cases under supervision are expected to increase more than normal case load growth due to the necessity of picking up cases from the Intensive Supervision units as they are phased out. " . . . the additional positions recommended should allow reasonable, although far from ideal, case load assignments. . ." The emphasis _ in the above quotations is our own. This committee does not agree with the use of the word "reasonable" in the last quotation. As one example, a training officer has been requested by the Department and recommended by others over a number of years without success. We fully concur with this request. It is the opinion of this committee that the full request of the Probation Department is reasonable and urgently needed, We -79- Probation Committee S, recommend that the Board of Supervisors reconsider its decision. We are faced with an anomoly in this case. The Chief Probation Officer is appointed by the Court and is responsible to the Court for departmental results . But the Board of Supervisors controls the purse strings, hence, unless they act wisely upon the requests of the Probation Department, they can frustrate the efforts of the Department, and the Court, as well. This is a point at which the closest kind of understanding and cooperation, mentioned in the ' beginning of this report, is needed. Parsimony where the probation activity is concerned is clearly false economy. Crime and delinquency are increasing for a variety of reasons well known to all of us . Under policies favoring detention, the county' s facilities are too small to hold all offenders. The cost to society keeps rising apace. Only a small percentage of those jailed are beyond saving, but a great and coordinated effort is needed to save the others . Effective rehabilitation, education and counseling is the only practical way to solve this problem. The organizational machinery for this purpose is set up and working - but working at low speed and efficiency because of the financial brake that holds it back. AN ADEQUATE INVESTMENT IN REHABILITATION NOW WILL BE PAID BACK IN REDUCED CRIME AND DELINQUENCY IN FUTURE YEARS. OTHER DEPARTMENTS AND AGENCIES The Juvenile Justice Commission The Delinquency Prevention Commission tThe Probation Committee attended the monthly meeting of -80- Probation Committee 1 these Commissions on September 13th. After their formal meetings i were concluded; we reviewed the entire field of probation and rehabilitation with them and the role they 'play in it. We were happy to find ourselves in agreement with the Commissions in just , about every factor involved and the possible solutions. This gives us great hope that the permanency of the Commissions, contrasted with the impermanence of Grand Juries, . will result in many advances in the county' s efforts to rehabili- tate delinquents and reduce their future numbers. While they are ' advisory commissions only, they are directly representative of the citizens of this county and, as such, deserve the respect and attention of all public officials. Foster Parents Association We met on September 20th with the Foster Parents Associa- tion.. Their records as ,foster parents prove beyond question their great capacity for love and compassion toward the foster child. We are prepared to believe that the great majority of Foster Par- ents have these same qualities in major degree. , One must have the greatest respect for parents who are willing to take a pre-delinquent or delinquent childinto their home and raise that child with their own natural children. They represent a tremendous asset to society which should. be used to the maximum degree in rehabilitation programs. They are the only ones who can provide a true home atmosphere for such children. No institution can do so. There are, at present, approximately 800 licensed Foster Homes in the county. Day care only is provided in 369 of them. -81- Probation Committee DFull time 24-hour care is provided in 431 homes, two of which care for not only the child but a parent also. 1 The Foster Parents feel that their services are not being used by Contra Costa County to the extent they should be. Once licensed, a new Foster Home may wait as long as two years before receiving a foster child. Considering the conditions which must be met by the Foster Parents before they can be licensed, and the delay (sometimes 10 to 12 months) before the license is issued, it is frustrating and discouraging to wait so long to receive a child. The result is that some Foster Parents turn to adjoining counties to obtain children. Contra Costa County is the loser when they do so. In explanation of these delays , both the Probation and Social Service Departments point out the need to select with great care the home into which a child will be placed. They must be sure the Foster Parents selected 'can cope with the characteristics of the child involved, e.g. , they avoid placing a child who comes 1 from a very poor home into an affluent Foster Home. Other factors such as religion and state of physical or mental health must be considered, etc. The Probation Committee does not feel qualified to judge whether the Foster Parents are 'expecting the machinery of government jto move too fast, or whether our government agencies are being overly cautious and simply moving at traditionally low speed. We do, however, declare ourselves fully convinced that Foster Homes are the most effective means of rehabilitating neglected and delin- quent children. We urge our county agencies to move forward -82- Probation Committee expeditiously and in the closest cooperation with each other, to utilize the available Foster Homes to the fullest degree and to recruit and license more of them. One handicap to recruitment must be the rates of com- pensation paid for child care. At present these rates are : (1) $105 per month for children through age 6. i (2) $110 per month for children ages 7 through 11. (3) $125 per month for children ages 12 to 21. Separate approval of the Board of Supervisors may be obtained for special cases involving crippled children and others requiring special nursing or medical care while in the foster home. The Committee is unanimous in its opinion that these rates are too low for today' s level of the cost of living. We do Y g not presume to be expert enough to say how much higher they should be, but we recommend that studies be instituted promptly by the County Administrator ' s Office in cooperation with the Delinquency Prevention Commission to determine the basic costs currently being experienced by Foster Homes and set compensatory new rates accordingly. The supervision of dependent children was transferred this year from the Probation Department to the Social Service Department, the latter Department having the responsibility to recruit and license foster homes. The Probation Department uses and supervises these foster homes as long as children under their jurisdiction are in those homes. We know of no cases where a. child under Probation' s jurisdiction and another under the , jurisdiction of Social Service are in the same home. Here, again -83- 3 Probation Committee ' we have a degree of divided responsibility between county agencies which requires the highest degree of policy coordination, coopera- ,tion and understanding if the interests of the foster children are to receive first consideration. Contra Costa County Employees Association We met with the Probation Services Unit of Local #1 to learn their points of view of the probation system and program. rThey were most helpful and forthright in these discussions. We were particularly pleased with their constructive attitudes and genuine concern that right solutions be found to the complex prob- lems of rehabilitation. We recommend that the 1972 Grand Jury give them a similar opportunity to expand on the ideas presented to us . Their contribution to us was related largely to the problems of adult probation which they compiled in a 40-page 1 brochure entitled "A Report to the Grand Jury on County Detention Facilities and Operations of the Probation Department". Time and space do not permit our going into detail as to the con- etents of the report, but we recommend to the county agencies 1 concerned that they secure a copy of it for study. A comparison of their recommendations and our report will show we are in jsubstantial agreement . Deputy Probation Officers A meeting was held with a representative group of Deputy Probation Officers who were chosen at random. They were found to have probation experience ranging up to more than 20 years . By -84- Probation Committee the end of the meeting we were convinced that the Probation ' Department is staffed with very capable and dedicated deputies . There are things they wish to see changed and they have , understandable concern for the slowness with which desirable I changes come about. So do Grand Juries' They will see in this report that many of the Committee' s recommendations coincide with theirs. CONCLUSIONS Y Throughout the year the Probation Committee' s interviews , g and inspections have brought to its attention all the contrasting opinions and points of view of those most concerned with the probation system in this county and its present means of dealing with the problems of crime and delinquency as the probation effort relates to them. The important question is, are we achieving the objective , stated in the first paragraph of this report? The efforts of our Probation Department and related agencies are succeeding to .a t degree, but in the opinion of this committee, it is a small degree compared to what needs to be done and what can be accomplished. I The county is spending large sums of money in the Proba- tion Department and the facilities under their management. The Department' s gross budget in the 1971-1972 fiscal year will be $5,555 ,144.00. In this report we have made recommendations which, if adopted, would increase that amount slightly. The question is not really how much money is being spent, but rather how it is being spent - on what kinds of facilities and what types of -85- Probation Committee programs , etc . The committee is concerned that the County Administration is headed for still greater outlays of capital funds and operating expenses in -the belief this will produce the desired result based on present policies and philosophies. After ten months of study into these matters, this committee has concluded that there is too much emphasis on jails and detention facilities and not sufficient effort made in treat- ing delinquency by means that lie outside such facilities . Contra Costa County is planning to build bigger detention facilities while other counties in California and across the nation are utilizing more modern and productive techniques and programs. Our County Administration seems to be quite stubborn in this matter of detention facilities and quite out of step with the desires of their constituents . Proposed bond issues with which to build a new jail and to remodel and enlarge Juvenile Hall have been rejected repeatedly by the voters, yet the county has set up a non-profit corporation under the name of the Contra Costa County ' Juvenile Facility Corporation to finance and build expanded Juvenile Hall facilities. WE BELIEVE THIS TOTAL DISREGARD AND CIRCUMVENTION ' OF THE WILL OF THE PEOPLE IS WRONG AND SHOULD BE STOPPED. Unfortunately, and to the committee' s disappointment, the Probation Department seems to be in complete agreement with this action. They too, seem to be enamoured of detention facilities 1 as the most desirable first step in dealing with delinquent. children. We do not agree. Such detention is necessary for only the most hardened and unresponsive delinquents and they are a small minority. 1 -86- Probation Committee F i The existing Juvenile `Aall is large enough to house this type without further expansion if effective action is taken to provide for the other types in ':pr.ograms outside of theRall. The popula- tion of the Hall is .down this year from last,, ,and it can continue , downward if these programs are utilized. There has been no lank 'of -ideas and .action recommenda- tions to both the Board of `Supervisors and the Probation Department by which to accomplish this .result.. .Other countlee's and state's have demonstrated that it can be -done. The Juvenile .Justice and Delin- , quency .Prevention Commissions , The :Foster Parents A,s.sociation., the Employees Union, various private ag;enc. es. past Grand Juries and , even the :Probation Department's own people who live with 'the delinquent probationers daily, urge that 'bgger and better deten- tion facilities are :not the answer. All of them have repeatedly submittced -very .specific ;program proposals to 'the Board of :Supervisors and Probation Depart- e - ' .meat involving new and trsted ideas , :which the 'Board .and Probation Department have consistently ignored:. We can only •conclude that our county official°s :are out ,of :touch with the recent pr-.ogre'ss made in -these .matters 'and too set in their ways 'to change quickly enough to, meet :the present ' crisis created by rap-id -population growth and the concurrent .r.ise in crime and delinquency. We suggest to the citizenfs of Contra Costa County that unless there is an immediate change .of direction in the handling of <delinquent children in this county., the present ':County ,Adminis- tration should be rep:lac�ed by men, with •deeper .perception, .more flexib.ility and greater foresight. , Probation Committee Release Date: 11-24-71 1 SPECIAL DISTRICTS COMMITTEE Fortney H. Stark, Jr. , Chairman G. Stewart Paul Donald E. Perkins Peter A. Veitch Arthur Wagstaff IFAIR EMPLOYMENT PRACTICES IN CONTRA COSTA COUNTY Contra Costa County is not providing a fair share of jobs to minority people. The following report is based on the most complete survey made since the 1969 report of Mrs. Hernandez for the Human Relations Commission. This report covers far more employees as it includes all the special districts in the county who may be considered to ' be using public funds to create jobs. The report indicates the lack of a positive fair employment program. This committee interviewed 88 organizations representing over 25,000 Jobs. Special districts wholly within the county, excluding those in the heavily-black cities of Richmond and Pittsburg, had a black hiring record of only 3. 85 percent. The minority population of the county is 7.4 percent, resulting in a hiring disparity of almost 50 percent. The overall statistics show 5.9 percent black employment as opposed to 7 .4 percent population. The good example set by the Bay Area Rapid Transit District in implementing a positive program for minority hiring should be followed by the Board of Supervisors and the governing bodies of all independent districts in the county. By taking a positive' stand and following up by means of written reports this county can be the leader in the spirit as well as the letter of the legal and moral responsibility to provide equal opportunities. -88- Special Districts Committee The committee has made the following observations as a , result of its survey and personal interviews : 1. Public agencies are not hiring minorities in a proportionate manner. , 2 . Less than half of the districts have stated and universally understood employment .policies with regard to minorities. t 3 . Few of the districts keep employment records which would help them monitor their minority hiring and promotion actions. RECOMMENDATIONS while there are some bright spots in the county govern- ment minority hiring picture, it is obvious that more must be done , especially in the area of Black hiring. Toward this end the follow- ing actions are recommended. 1. That the Board of Supervisors take the lead in ' encouraging county departments , agencies, and districts to adopt affirmative minority hiring practice statements. 2 . That the Board of Supervisors require a yearly minority employment report of all departments and districts within its control. ' 3 . That the Board of Supervisors . and Grand Jury encourage , all independent and inter-county districts to take part in the affirmative action program outlined in l and 2 . COMMENTS The members of the committee have examined a number of , hiring practice policy statements and one stands above the others . The fair employment practices statement of the Bay Area Rapid Transit District (Appendix I) is both concise and affirmative in nature. Further, its communication through the BART organization has proved -89- Special Districts Committee to be an effective means of inspiring an affirmative action pro- gram. Consequently, we recommend that the Board of Supervisors use this policy as a model for the county. iWe further recommend that the Board of Supervisors tailor the recommended yearly employment report after the Federal Employer Information Report EEO-l. The form is the product of ' the Equal Employment Opportunity Commission and the Department of Labor and has proved to be comprehensive and readily understand 1 able (Appendix II) . The final recommendation is made with. the hope in mind that the Board of Supervisors will view the Black employment/popu- lation disparity as a challenge which would be accepted by all districts serving the citizens of Contra Costa County. Even though the Board does not "control" the Independent Districts it is felt that the Board does have the ability to lead in a program for ' affirmative minority hiring action. _90- Special Districts Committee API:'I--,NDIX I LAY AREA RAPID TRANSIT DISTRICT ' POLICY OF EMPLOYMENT ' GENERAL It is the policy of the District that: 1. No person seeping employment shall. be dis- criminated against because of: a, race b, creed c. color d, national origin ' e. sex f . age g, or, physical handicap which does not Iii-nit his ability to perform the job 2. The District will take affirmative action to insure that applicants are employed and ' employees are treated during employment without regard to the foregoing. Such action ' shall include but not be limited to the follov,Ting: a. Employment, upgrading, demotion or transfer b. Layoff or termination c. Recruitment and recruitment advertising d. Rates of pay or other forrns of compen- sation e. Selection and training 3. Only _bona fide qualifications to perform the work shall be considered. 4, Each Department Head and management employee shall make imaginative and positive efforts to assure fair employment and promotional oppor- tunities for all qualified persons. -92 ADMINISTRATION 1. Department Heads and other District personnel' authorized to hire, promote or recornmend effectively such actions, shall be responsible , for implementation of the spirit and the letter of this policy as well as of local, State and Federal laws and orders relating to fair ern- ployment and equal opportunity. 2. Prior to rejection of an apparently qualified employment applicant or candidate for pro- motion who is also a member of a minority race, a District manager or supervisor con- sidering the individual will submit his reasons for rejection in writing through the Personnel ' Department to the Assistant General Manager - Administration for District management review prior to final action. 3. It is the intent of this policy to develop and maintain a District staff representative of all residents of the District. , 4. Consistent with this policy, the best qualified person shall be selected for employment or promotion. -93- ' APPENDIX II I rorin ICO('!t'vi"cd) JOINT I'Ci 0,F'TING C0111.11il-1-1 IT", Appro-.-cd M)S-124-MD02 0 Equal En'P!oYinont OpportunityConuni siorl 0 Office of Federal Contract Coniphanc,, 0 Plans for ProCrc,.;s Pro_jrani Please use this form If box has pretiddresscd label. PAH 11—i"'E"ORTINIG UN113-1 A separate Part If Must be filed for each PePOItilIE, Unit Of a f.,LJ1ti-eStab!ishm3nt crnployer, including a Part If "Consolidated Report" sum- marizing, the data for the entire company and a report covering Vic principal or headquarters unit. A SinZl;-;-cstabN7 mant employer must file one Part 11 with its Part I form. ' Sea Instruc. Scct!3n F—RZ;102T[,%G MIT IDENTIFICAMN OFFICE tions USE 1. ONLY Name of Company d. 7b, Reporting unit for which this report is Med. (Ans,,ver in full. If a combined report covering two or more units pease so indicate and identify the area covered by the combined report.) e. 9b(I) a. Name of reporting unit Address (Num.bor and street) City or town County State ZIP code 9- Ili, b. Emp!oyer Identification No. c. Office Use Only Ilm (Sce sz�c'tion I Ij of instructions) h. Secton (,—E IM PLOY MATA 1. 'Employinent oll thts reporflnZ unit.—Report all permanent, temporary, or part-time employees unless specifically excluded as set forth in section I If of the instructions. Enter the appropriate figures on all lines and in all columns. Blank spaces will be considered as zeros. (See section 9b(2)of the instructions on hovl to fill ou�`this table,and section 10 for a description of the job categories.) In columns 1,2,and 3, include all employees 4n the reporting unit, not merely those in rnincrity Croups. 1.2,3, 14 ALL EMPLOYEES MINORITY GROUP ELIPLOYEES Male Female Job Total PA210 Female Spzrlish Spanish 9b(2) Categories (Col. 2+3) Negro Oriental American American Surnamed Nogro Oriental Surnamed Indian I Americans Indian" krgTiC21 10 (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) q ............... Officials and managers.. ............................................................ ............... ........—--- ----------- .............. ...........•---•---......... ............_- ----*........ . ......... Professionals................. .•--•..........._..............._.........._ I..................... ............. .............. ........................................... .............. ............... Technicians................... ....................-•----................ .............. ............... ............... Salesworkers................ ...................I................................................................................... ............... ............... .............. .............. ............... Officeand clerical....................................................................... .............. .............. ............... .............. .............. ............... .............. ............... Craftsmen (Skilled)....... •-_._.....:............................................................................................................................ .............. .............. ............... Operatives (Semi-skilled)............ ......................................................................................................................I............................. .............. ............... Laborers (Unskilled)----•• ............................................................................ ...................I......... .............. ............. ............. .............. ............... Service %vorkers............. ........=J.........--------- .................... .............. .............. .............. .............. ............... .............. ........ ........ TOTAL > Total employment from previous report (if any) (The data below shall also be Included In the fi.,ures for the appropriate occupational catc.,orias above) On-the- jobWhite collar.. ................. ................... --- -- -- ------ ............. ....... trainees ............. ........... - -------- -------------- --------------- --------- Production.... ................. I I.................. ................... . I See explanation of "minority --mw) identificntion" in section 9b(2) of the instructions. The term, "Spanish Surnamed Americ7n," includes all persons of Mexican, PU(r',3 Rican, Cuban, or Spanish origin.The term, "American Indian," dens not include Eskimos and Aleuts, I Report only employees rnroll,2d in formal on-the-fob training; pro7.rams. —94— ane Tar.;. t •- See instruc- Section G—E'AiPLOYP,t:ir'T CATA—Continued tions 11x, 2a. Does this Reporting Unit employ apprentices? 4. Dates of payroll period used—You should gather and fepo fly 1 ❑ Yes 2 ❑ No employment data at the repo:tin-7 unit during only one payrc b. If "Yes," is Apprenticeship Schedule A attached? period in December, January, February or Nlarch. btulti•establis: P? P ment employers need not use the same payroll period for all unit. I ❑ Yes 2.❑ No—Apprentices were reported earlier on Apprentice- ................................................... ship Information Report EEO-2 5. Date of last report submitted for this reporting unit...e.............. 3 ❑ No—other reason (explain in Section I "Remarks"). ..•................•..--..-...-..-...--..--.....-.-•...-••--•...•-•-•••.-•..•...•-•-=•--..•-.._.-.-. 3. How was information as to race or ethnic group In section GI obtained? ❑ No report filed for this unit last year. Please note that these data may be obtained by visual survey 6. Are there any employee facilities (i.e., drinking fountains, re, 9b(2) or post-amp!oymcnt records. Neither visual surveys nor post- rooms, recreational areas, lunchrooms, etc.) at this reporUn employment records are prohibited by any Federal, State or local unit which are provided for employees on a racially separat law. All specified data are required to be filled in by law. basis? 1 ❑ Visual Survey 3 ❑ Other—Spocify-•.••.............. 1 ❑ Yes • 2 ❑ Employment Record ............................................ 2 ❑ No Section H—REPORTINIG UNIT 11' O:::AATION 1. Indicate by marking in the appropriate box the type of reporting unit for which this copy of the form is submitted (MARK ONLY ONE BOX; (1) ❑ Single-establishment Employer Report I (3) ❑ Principal or Headquarters unit Report Multi-establishment Employer: (4) ❑ Individual Establishment Report (submit one for eac (2) ❑ Companywide establishment)Consolidated Report , The following are designated "Combined Reporting Units" and are d3scribed in Section Sa of the instructions. They are optional reporting alternatives and should be used only after consulting the instructions, All Combined Reports must include an attachment giving the address and total emp:oymcnt of each establishment covered by the raport. Note that (5) through (9) may be applied to establishments in the Retail Trade, Wholesale Trade, Finance, Real Estate, and Service Industries,regardless of size,as well as establishments with less than 50 employees in other industries. (5) ❑ "Designated City" of ............................................................ (10) '❑ Small Establishment Report covering establishments wit (6) ❑ Standard Metropolitan Statistical Area of...... ...................... less than 25r employees (must be accompanied by a lis ' showing emp oym_,nt figures by occupation and State). (7) ❑ Standard Metropolitan Statistical Area excluding establish- ments located in the "Designated City" of•---------................. (11) ❑ Report under a Spacial Reporting Procedure obtained b ' prior written permission of the Joint Reporting Committee (3) ❑ Standard Metropolitan. Statistical Area of ............................ ------------------------ covering only establishments in the State (12) ❑ Other—Explain. .............-.-...........:........-•...-.....---...-.....--.... of ...................................................... ----.....-.--..-..-.--.........--.......-....-.......---..-............-....•.-..-...--..-. (9) ❑ State of .---•................ ........................ excluding all •--..---....-.•-....-.•.....-.-.-..--.-.-..-.............................................. , Standard Metropolitan Statistical Areas. •......................•.-.-....-.........-.-...-...,.-.....-.-.-..-.-.,.--..-.........-.-- 2. If you have marked (1), (3) or (4-) above—is the location 3. Is the rncjor activity t this reporting unit the same as that OFFICE , of the establishment the sama as that +reported last year? reported last year? I USE 9b(3)(b) 1 ❑ Yes 2 ❑ No 3 ❑ No report last year 1 ❑ Yes 2 ❑ No 3 ❑ No report Inst year ONLY 4. What is the major activity.of this reporting unit? (Ec specific, t product or type of service provided. "Manufacturing," "Whole- ' i.e., manufacturing steel castings, retail Lrocar, wholesale sal^_," "Retail," "Processing," "Sales," etc., are not su;;i- plumbing supplies, title insurance, etc. Include the type of I ci:nt.) 9,15(3) .'. i. Section Use this item to give any identification data appearing on last report which differs from that given above, explain major changes in employ roent, chan�,es in composition or reporting units, and other pertinent infoimation. - Section J—S1C-:?l l lfi:`=.A f)l fir'1 r 1CA f•I :' (To bo anS.vorcd by a dos;,n;,�d official of the-!porting Unit) Plcase nota that the, siUm uie of a respons C le R;.00rii-L Unit o ici.l is not re!t n^d if aN Part fl ro por s arc prep fired at haadquarter a ' 915(4) si2n::d for in Part I. In th it., nt, cif ck the d-,il-„1,-d box in r,!.: e of the ',n na,e. All outer r;`orm Lon in this Section m is; be complcte_l- Name (Signahnr.)--- ----- ----._--------------------------- .:I, Do.. ------------------ Chcc`her if si;,ned for by a company haadyu rc-cs c'ici I in Part I ❑ Nime (Ty,. r„ r,fat) P,a rc., (i,un; _r..rd - .Tcic,':mie ---- — ---- --__ __—stete Ti _ cu—.. _ !au col•_ I i ;,Ser � Ed,,.u•wi Title Cit; Z J —95— -15-1p- IIPte ' Release Date: 11-29-71 SPECIAL DISTRICTS COMMITTEE Fortney H. Stark, Jr. , Chairman G. Stewart Paul Donald E. Perkins Peter A. Veitch Arthur Wagstaff RECOMMENDATION FOR MODIFICATION OF SUPERVISORS' STATUS AND SALARY It is our recommendation that the County Board of Super- visor position be made a full-time job and their a be increased P J pay ' to reflect the full-time nature tied, for example, to the assembly- man's salary of $19,200 per year. It is also our recommendation ' that a strict conflict of interest and personal financial disclosure rule be drawn which would preclude a supervisor from earning income from any outside source other than personal investments held, prior to being elected a supervisor. It would be our feeling that the supervisors , to carry out their work effectively, would need administrative assistants similar to those provided for assemblymen. Administrative assistants, serving at the pleasure of each supervisor, could be selected and ' responsible to that supervisor. It is anticipated that the salary would be in the $1,000 a month range. To qualify to be selected as an administrative assistant, the individual would need a law degree, a master' s degree in business administration, a CPA certificate or a graduate degree in municipal administration or other relevant courses of study. It is suggested that no relative be allowed to be employed ' in this position by any supervisor and that the supervisors be given adequate space and secretarial support for these men to pro- vide the research to the supervisors. -96- Special 96-Special Districts Committee 1 We felt this would be more effective than expanding the County Administrator ' s job. The County Administrator must after ' all make five men happy. Many of the supervisorial districts have different interests. For example, Richmond is highly industrialized ' while the district that contains Danville and Alamo is almost completely residential. It is conceivable. that these supervisors would often be at conflict. The present Administrator system can ' only be a ,conciliator and an arbitrator. He must stay in office through maintaining the good will of the supervisors and the super- 1 visors therefore can not best serve the interest of their district unless they have completely independent research and analytic help. , Once again, we feel the spending of a little additional money would provide great benefits to the county in more thorough government analysis and, indeed, help the supervisors to respond ' more adequately to the wishes of the people in their districts . -97- Special Districts Committee Release Date: 12-13-71 SPECIAL DISTRICTS COMMITTEE Fortney H. Stark, Jr. , Chairman G. Stewart Paul Donald .E. Perkins Peter A. Veitch Arthur Wagstaff FUNDS TO HIRE CONSULTANTS FOR THE GRAND JURY ' Grand Juries may hire consultants to investigate indepen- dent districts. The 1971 Grand Jury feels this is needed to aid future Grand Juries. We therefore request the Board of Supervisors to set aside an additional $25 ,000 to be used for this purpose by 1 the 1972 Grand Jury. ' Attached copies of criticism of BARTD (see Appendix I) indicate the extent of citizen unrest. The Board of Supervisors ' has no power to conduct a thorough investigation and the Grand Jury has the power (see Appendix II) but lacks the time and the specialized talents and skills to effectively investigate a modern day transportation or utility operation. We suggest, as an alternative type of investigation, a professional consulting firm. The attached statement (see Appen- dix III) from the Arthur D. Little Corporation is an example of ' the completeness of this investigative form. (There are many other firms besides Arthur D. Little who are capable of providing the ' services to the Grand Jury. ) ' Let us suppose, for example, it became necessary to inves- tigate the very elaborate and extensive data processing operation in the County. No one on the Grand Jury or the Board of Supervisors has the special knowledge required to investigate the efficiency -98- Special Districts Committee 0 and accuracy of those operations . Only by hiring a .consultant in r D this new technological field of data processing could we adequately g can PP discharge our duties. This same line of reasoning be applied r 0 g to reviewing water services and transportation services . The future planning done by those districts will affect this County for many years to come. With the very small additional funds which we 0 are requesting for Grand Juries in the future, the savings that could result to the taxpayers could be many times that amount. 1 1 1 0 -99- Special Districts Committee ' APPENDIX I These excerpts indicate public feeling: Contra Costa Times, July 20, 1971 Grand Jury Probe Urged On BART Spending "Grand Jury investigations of Bay Area Rapid Transit District spending are being urged in Contra Costa and Alameda counties, the Times learned today. The California Welfare Rights Organization (CWRO) has requested the Grand Jury of both counties to investigate what it calls BART's "erroneous and improper use of public funds. " CWRO has asked the juries to implement a full investigation of BART's 1971 - 72 budget, requesting that special focus be made on the number of departments, qualifications of personnel, salaries, bid procedures, and the availability of public access to information. "Never have the rich and poor taxpayers of the San Francisco Bay Area paid so much and waited so long for so little. " Miss Ethel Dotson, Northern California Representative of CWRO, and Mrs. Barbara Henry, president of the Contra Costa County CWRO chapter, stated in a letter sent to Fortney Stark, chairman of the Contra Costa County Grand Jury's special districts' committee, and also delivered to Forrest J. Simoni, a member of the Contra Costa County jury, the Grand Jury of Alameda County and.Assemblyman John T. Knox (D-Richmond). " Stark, on vacation at Pine Lake, Wisconsin, told The Times he will ask the Alameda County Grand Jury to g P investigate BART's spending in accordance with an agreement by both juries dealing with special districts. "If Alameda declines to do it, '' he said, "I'll ask our (Contra Costa) Grand Jury to undertake the investi- gation. " He said that both juries may decide on separate investigations. �> He urged CWRO to take its complaint directly to the District Attorney's office of both counties if it suspects criminal intent. "I don't believe those guys (BART) are guilty of any criminal actions, " he said, "but they are a big bureaucracy. " Simoni told The Times the Contra Costa County Grand Jury probably will discuss the matter August 12, at which time it would be given to Stark's committee. ,BART's approved budget increase from $8. 77 million dollars in 1970-71 to $17. 2 million for this fiscal year startled Assemblyman Knox. He said it is way ' above inflationary levels. Knox said he has never received a copy of BART's budget. A spokesman in his office said a legislative investigation should be launched instead of a Grand Jury probe. " _100- The executive director of the Contra Costa County Taxpayers Association, James Carroll, said a Grand Jury investigation into BART's spending is long overdue. BART has been unresponsive to the Alameda and Contra Costa County Taxpayers' Associations, Carroll said. "They don't care really to make any- thing public. " Contra Costa Times, July 21, 1971 Taxpayers Frustrated Demands For Probe Of BART Aren't Surprising "It was only natural that BART should be asked to account for its policies and spending practices at a time when the budget jumped to $17. 2 million from ' $8. 77 million last year, despite the fact that some of this reflects readying the system for its start next year. For there has been a great deal of private and public resentment expressed by Contra Costa County taxpayers over BART administrative practices, including salary increases to already extremely well paid administrators, its advertising programs and budgetary practices. Over the past two years, there has been detected in Contra Costa County in particular feelings of frustration by the very public that is helping to pay for 75 miles of track at a cost of $1. 36 billion. Many residents have complained to The Times that even when they telephone BART's central office to ask relatively simple questions about practices or policies they detect what they believe to be completely defensive footwork at the other end of the line instead of the simple explanation that might clear up their questions. Bay Area Rapid Transit District, as a public-supported agency and one that should be more instead of less accountable and sensitive to the public and its queries, cannot be allowed to deteriorate into a gigantic bureaucracy that fails to be receptive to the new ideas and suggestions. More importantly, however, perhaps in their deliberations a grand jury or state legislative investigation will decide, we would hope, that BART be removed from the appointive to the elective field. This would mean that every two or four years directors who make the decisions that result in increased taxes, good or poor service, extension of the lines to Antioch, Pittsburg, etc. and are responsible for the budget would have to justify their actions the same as city councilmen and county supervisors, not to mention state legislators, must -- by either resigning or seeking reelection for another term on the board. ' The $20, 000 to $30, 000 for a grand jury investigation of practices and policies at BART is an insignificant amount if, as it would be hoped, solid recommendations are made and acted upon -- recommendations that could not only save the taxpayers perhaps a great deal more but put BART trains on the tracks on time. " -101- r Contra Costa Times, July 27, 1971 WC Homeowner Council Urges Probe Of BART "Walnut Creek Homeowners Council, representing 23 individual homeowner associations, has voted to encourage any investigation clarifying the BART budget and opposes any costs unrelated to improving the system. The Homeowners Council has five directors and two representatives from 12 each of 23 homeowner groups in Walnut Creek. An estimated 30, 000 persons are represented by the group which meets monthly. The group was established to encourage better community relations with government and other agencies affecting the city. BART officials announced the $17. 2 million 1971-72 budget will be reviewed, following criticism from legislators and various groups." i -102- CON IUA C,vSIA COUNTY .FISHMAN GEORGE W. McCLURE SFIISONSALVES Aui.lonl COURT HOUSE '1.TOP FLOOR E.V.LANE, JR. P.O.00X 69 A.W.WALENTA. JR. MARTINL•Z, CALIFORNIA 94553 W.W.WARD III PHONE: (415). 228-3000 VeJeWESTAAM October 7., 1969 Conrad J. Wilke , Foreman 1969 Grand Jury 1237 Davis Avenue Concord, California a� Re : Grand Jury Can . "Management Audit" Special Districts Dear Mr. Wilke : A recently passed statute must be mentioned in connection with our views on "management audits" (as distinguished from financial audits) , expressed in our memos of 6--10-69 and 6-16-69 , and in our recent letter to you. This year the Legislature amended Penal Code Sec. 933.5 by adding the underlined words : "A grand jury may at any time examine the books and records of any special-purpose assessing or taxing; district located wholly or partly in the county , and , in addition to any other investirratory powers granted bZ�, this chapter_, ay' investigate and report upon the method or system of performing the duties of such district . " This amendment becomes effective on November 10, 1969 ; and the Grand Jury will then be authorized to "investigate and report" on a special district 's "method or system of per- forming [its] duties . " It is noteworthy that similar language has not been added to +� Penal Code Sec. 925, which authorizes financial audits of county officers ; so the new authorization is limited to the .special districts. covered by Sec . 933 .5. Yours very truly, John B. Clausen County Counsel By George W. McClure GWM:me Chief Deputy County Counsel cc : Hon. Thos . F. McBride Count-y Administrator County Auditor APPENDIX II '-103- �1 Arthur D Little, Inc. 500 SANSOME STREET SAN FRANCISCO CALIFORNIA 94111 (415)981-2500 June 17, 1971 Mr. Fortney Stark President Security National Bank 1500 Newell Avenue Walnut Creek, Ca. 94596 Dear Mr. Stark: 1-3907 As Dr. Cyril C. Herrmann indicated to you in his letter of May 13, we are pleased to submit for evaluation by the Contra Costa Grand Jury our proposal to study the special districts which serve Contra Costa County. The proposal provides our understanding of the problem, the scope of work we would under- take, and our approach to the effort. We are also submitting summaries of relevant company experience and biographies of staff members who would par- ticipate. OUR UNDERSTANDING OF THE PROBLEM Throughout the country the existence of fragmented, ineffective local gov- ernments, often lacking revenue-raising powers, has led to the inability of governing bodies to face and solve problems which extend beyond their S particular jurisdiction. The predictable result has been the rapid in- crease in the creation of special districts to deal with regional, rather than strictly local, problems. � - Contra Costa County exists within such a regional framework, with a pro- liferation of special districts serving it. More than 150 districts pro- vide various specialized services; the most obvious are Bay Area Rapid Transit District, Alameda-Contra Costa Transit District, and the East Bay Municipal Utilities District. GENERAL BACKGROUND �► The rapid increase in number of special-districts attempting to serve re- gional, rather than municipal or county, needs can be attributed to several factors: (1) The belief that such supra "entities" would be free from the influence of 'strong special interest groups functioning with- in smaller local governing bodies; CAMBRIDGE MnssncHusF-rTs , ;r.i �i,ICO Cfiv N!'IV��'�• 11AHIS fill)M,JAN(010 !,AN FRANCe4C() ��)Iu�N�C wn��,inNi;ic,r� 7iiRicfi APPENDIX III -104- Arthur D Little,Inc. June 17, 1971 Mr. Fortney Stark, President Security National Bank 1-3907 r� (2) The numerous restrictions that prevent local governments . from tapping various revenue sources and/or conducting certain activities; (3) Bonding and tax limitations that prevent local governing bodies from solving large-scale problems; (4) The necessity, in urbanized areas, to attempt to solve areawide problems and provide areawide services, and to tap a significant revenue base to finance such activities; (5) The ability of already created special districts to pro- I' vide equitable areawide financial tools to perform the needed services; and (6) The comparative ease of creating such special purpose (� districts. In spite of the general success of special districts in achieving the pur- poses for which they were formed -- e.g. , to solve particular problems or provide a particular service -- they are liable to criticism. The obvious criticism is that the special district represents an additional layer of limited purpose government and that "tunnel vision" will invariably result from the successful completion of a single mission. A closer evaluation of the special districts indicates' even more basic problems. Critics of the special purpose district "list the following as its principal shortcomings: (1) Fragmentation of responsibility, (2) Undue responsiveness to special district bondholders as opposed to the electorate in general, (3) Frequent interference .with the coordination of policy and rational adjustment of activity priorities by the tradi- tional governmental units, (4) Undue emphasis on the solution of particular problems, thereby frequently impeding overall basic reform of existing governmental entities, . (5) The propensity of successful special purpose entities to be aggressive in the pursuance of their mission and fre- quently to push into activities beyond their jurisdiction, and (6) Additional difficulty in efforts to evaluate the cost/ benefit ratio of overall governmental activities. -105- , � Arthur D Little,Inc. Tune 17, 1971 Mr. Fortney Stark, President Security National Bank 1-3907 A more subtle but obvious difficulty is the ability of special purpose dis- tricts in "nonsocial" areas of public administration to be shielded from such socially sensitive issues as minority hiring, work training programs, and responsiveness to particularly affected citizen groups. SCOPE OF WORK PROGRAM PHASE I The work program will consist of the following tasks necessary to evaluate the special purpose district function in Contra Costa County: Task 1 - Selection of Appropriate Special Districts for Detailed Evaluation Task 2 - Background Evaluation' Task 3 - The.Present Political Setting Task 4 - The Determination of Mission Accountability Task 5 - Evaluation of Existing Plans and Activities Task 6 - Evaluation of Proposed Plans and Activities Task 7 - A Determination of the Responsiveness of Special Districts to Changing Social and Economic Needs Task 8 - A Determination of Suitability or Adaptability of Existing Special Districts for Ultimate Inclusion in the Viable Regional Government Task 1 - Selection of Appropriate Special Districts for Detailed Evaluation 1� Timc and budget considerations preclude the detailed evaluation of each of the 150 special districts functioning within the Contra Costa County bound- aries. Therefore, it is appropriate that we select no more than 12 special districts for preliminary evaluation. Selection will be based on these factors: s Length of time that the district has been functioning, ® Importance of the special purpose for which the district was created, • Past "success" or "failure" in operation, -106- Arthur U Little,Inc. June 17, 1971 Mr. Fortney Stark, President Security National Bank 1-3907 • Controversial projects the district has been, or will be, involved in, and • The extent to which the special district has political support or opposition. We will select what we believe. to be important special districts and will review them with the. Contra Costa Grand. Jury. Based-. on your recommendations we will then reduce the number to eight districts considered: most. suitable for evaluation. Primary attention will. be focused upon major, area-wide special districts, including the East Bay Municipal Utility District and the Regional Park System. We will then begin the detailed district-by-district evaluation as outlined in Tasks 2-8. Task 2 - Background Evaluation We will examine the circumstances which led to the formation of each dis- trict selected, historic tasks for which the district. was created., the ex- tent to which it has met legally specifiedobligations, and the historic ability or inability to maintain political support from, areawide electorate and from elected representatives in the areas served. Task 3 - The Present Political Setting : We will next ascertain each district's currentpolitical- posture vis-a-vis political influence, contacts with state and municipal government bodies, and the influence of lobbyists as they- assist in the maintenance of the special purpose district (or- attempt todismantle it)`. An additional iden- tifiable factor reflecting the political. potency of the particular special districts is their ability to raise revenues either. through taxation or . other forms of subvention. We will also determine the ability of proposed programs to assure the continued existence and active involvement of the districts being analyzed.. Task 4 - The Determination of Mission Accountability Typically, special districts are created by enabling legislation which de- tails their particular responsibilities. We.will evaluate the 20 districts in terms of the mission and-. role for which they were created. We will deter- mine if each district historically functioned primarily in response to the solution of problems and provision of services which prompted. its. creation. The second part of this evaluation will be an identification. of the method's by which accountability has been and is determined by executive leadership of the special district, as well as by appropriate elected county. officials. � In other words, is the special purpose district mission of such a nature �f that it can be judged in terms of accomplishment or. planning for future ac- complishment? Equally as important, have the appropriate people made the effort to determine if the special district Lias pursued activities in line with its area responsibility? { -107- Ard.IUr I) Little,Inc. June 17, 1971 Mr. Fortney Stark, President Security National Bank 1-3907 Task 5 - Evaluation of Existing Plans and Activities Special purpose districts, like all public entities, must plan and execute their plans. In this task, we will determine whether existing plans and activities are related to the primary goals of the special district and whether they have been coordinated with the activities of other special dis- tricts as well as affected local governmental entities. Task 6 - Evaluation of Proposed Plans and Activities We will be concerned in this task with the compatibility of proposed plans �j and activities with the identified goals and mission of the special district as well as with the proposed plans and activities of other special districts and affected localities. Task 7 - A Determination of the Responsiveness of Special Districts to Changing Social and Economic Needs Typically special districts function in "political isolation" -- that is, they do not have primary responsibility to respond to a particular elec- torate. For example, special districts are not usually highly sensitive to the needs of minorities or other people needing special training and educa- tion for meaningful employment. We have noted above that typically such special districts are primarily concerned with the needs of the bondholders. Such concerns as minority needs for employment, environmental impact on the area, and the need for integrated program development are not subject to scrutiny and criticism of affected citizens. Task 8 - A Determination of Suitability or Adaptability of Existing _ Special Districts for Ultimate Inclusion in the Viable Regional Government This task will entail a synthesized evaluation of (1) the special districts, (2) identified missions, (3) past history of accomplishment of these mis- sions, (4) the political expertise and influence of the districts, and (5) the districts' structure. The objective will be to determine suitabil- ity for inclusion, in one form or another, into a higher level of regional or districtwide government. Such an evaluation will take into consideration the conflict, or lack of conflict, of the particular special district with the functional operations of other districts as well as existing governmen- tal entities. The most appropriate activities for incorporation into a re- gional government will also be identified. PHASE II the district-by-district evaluation we will Following the completionof , construct two "scenarios" for use in the development of final recommenda- tions on the special districts. -108- Artluir D Little,Inc. , June 17, 1971 Mr. Stark, President Fortney Security National Bank 1-3907 1. The Creation of a Viable Regional Government Assuming in the foreseeable future the creation of a viable regional govern- ment for the Bay Area counties, it will be appropriate to develop an admin- istrative plan incorporating special districts within such a regional gov- ernment. Under this assumption we will make recommendations in the following areas: • A plan of incorporation of the appropriate special districts within the regional government, • The phasing program for incorporation of the various special districts within Contra Costa County so as not to seriously alter existing services being provided by such special dis- tricts, and • Recommendations as to the suitable retention of mission iden- tity by the entity as it is incorporated within a regional governmental context; i.e. , the special district's function should be taken over by a responsible governmental entity administered by elected representatives but .it should not as a result be just one of many public services incorporated at random. Recommendations Assuming No Regional. Governmental Development The development of a viable regional government appears unlikely in the near ✓ future. Based upon this assumption, we will make recommendations regarding the future of the special districts with primary attention on these elements: • The elimination and/or duplication of special district activities, • The reduction of multiple taxation by such special dis- tricts, and c ;� • Identification of the appropriate controls of the activ- ities and related revenue-raising capabilities of special districts. Considering existing political realities, we think it will be appropriate at this point in the work program to realistically concentrate evaluation and recommendations on the continued existence of special districts without the creation of a strong regional governmental entity. Thus, most of our evaluation in this phase will be directed toward the reduction of obvious duplications in service and taxation, and the possible creation of appropriate -109- Arthur D Little Inc. June 17, 1971 Mr. Fortney Stark, President Security National Bank 1-3907 political constraints upon such special districts. For example, we might recommend establishment of a countywide council of elected representatives to function as a "watchdog" of the special districts in Contra Costa County. Its primary function would be to alert the citizenry and appropriate elected representatives at the state level of possible excessive activity or lack of activity on the part of particular special districts. TIMING It is our understanding that you would like the evaluation completed as -� rapidly as possible. Therefore we will complete the first phase analysis of selected special districts within thirty days of the date of contract execution. Following this, the Phase II recommendations will be completed within twenty-five days. At this point we will make an oral report of our findings and recommendations to you. Following this oral report, fifty copies of a final written report will be provided to the Contra Costa Grand Jury. COST AND DURATION For the work outlined above, our charges for professional services and ex- penses will be $25,000. Invoices will be submitted monthly. For each of the first two months, we will bill you $10,000. The remaining invoice for $5,000 will be submitted after the presentation of our final report. Based on our current commitments, we expect that we can present our findings to you orally approximately two and one-half months from the date we start work. The written report would follow about one month later. STAFF RESPONSIBILITY Based upon present staff schedules Dr. Herrmann will be in overall charge of the work program. I will have the day-to-day responsibility for the evalu- ation and development of recommendations which will emanate from our research and analysis. Associated with us will be members of our staff with back- grounds appropriate for this particular assignment (see attached biographies) . We understand that we should look to you and selected members of the Contra Costa Grand Jury for general direction and policy decisions on behalf of the Grand Jury. Arthur D 1_ittle,lnc. June 17, 1971 Mr. Fortney Stark, President Security National Bank 1-3907 GENERAL PROVISIONS Our work for you will be conducted on a confidential basis and we will treat information developed hereunder in accordance with our established profes- sional standards. It is .understood that neither party will use the name of the other for ad- vertising or promotional purposes without prior permission in writing. Reports resulting from this assignment become your proper.ty:;. 'however, our authorization in writing is required if our reports are reproduced in whole or in part for use outside your organization. Our agreement may be terminated upon thirty days' written notice by either party or within such lesser time as we may find necessary to conclude the work currently underway and summarize our findings for you. ACCEPTANCE For the purpose of staff scheduling, this proposal is made subject to accep— tance within twenty-one days. If you wish us to consider an extension of this acceptance period, will you please advise us in writing. It We look forward with great interest to working with you on this project and will devote our best efforts to accomplishing the program outlined under the n Scope of Work Program. If this proposal is acceptable, will you please sign and return the enclosed copy as authorization for us to proceed with the work. Very truly yours, Donald P. Black Letter in duplicate Approved for Arthur D. 'Little, Inc. Accepted for Contra Costa Grand Jury By By . Authorized Contracting Officer Title r Date �1 -111- Release Date: 12-20-71 TAXES AND ASSESSMENTS COMMITTEE Forrest J. Simoni, Chairman Leo Armstrong Richard Kerbavaz The property tax is one of the most regressive of all forms of taxation, and unrelated to the ability to pay. Govern- mental agencies ' insatiable hunger for the tax dollar no longer can be satisfied from the property tax. At the same time voters, for the lack of understanding of complicated ballot proposals, are �- adopting Constitutional Provisions and the Legislature, by legis- lative action, expanding the "preferential" property tax treatment of special interests. Property taxes have reached the point where many of the retired, the aged, and the poor are driven from their homes in ever increasing numbers . The same principle applies to the small business- man. Sadly, but true, they cannot look to their local legislative body (Board of Supervisors) for any relief because this requires action at the State Government level. Annually, the State Legislators and the Governor speak " well of tax reformt1tax relief and of other benefits for the home owners. The frightful tax load of today inclines the taxpayer to be more impressed by legislative action in his behalf than all of the rhetoric his experience has taught him to distrust . If any property tax legislation is enacted, it usually results in a shift of the tax load from special interests to the home owner. Un- fortunately the home owners are not aided by high priced lobbyists as are special interests. The net result is in most cases that the special interests obtained preferential tax treatment at the 112 - Taxes and Assessments Committee expense of the homeowners. ' The hour is late and the responsible government officials should act at once to relieve the home owner of the oppressive property tax load. Some immediate legislative action is indicated by the fact that dissatisfaction and rebellion is obviously uppermost in the minds of the taxpayers. 1970 Grand Jury Recommendations The four recommendations made by the 1970 Grand Jury were reviewed with the County Assessor to ascertain whether they had been implemented Our findings are as follows : RECOMMENDATION I The automation of the Secured Roll Maintenance System has been completed. A reorganization study of the Appraisal Division and the Clerical Staff is now under way. When this study is com- pleted, the Computer Assisted Appraisal Program will be implemented. RECOMMENDATION 2 To provide additional office space the county has pur- chased the Martinez Office of Western Title and Guaranty Company. The office will be modernized and staff moved in from rented quarters, hopefully, in 1972 . RECOMMENDATION 3 The Audits Division is adequately staffed with Auditor- Appraisers . However , limited additional clerical help should be provided to relieve Auditor-Appraisers of routine clerical work. RECOMMENDATION 4 Moving of the lien date from March 1st to January 1st and the userof "average inventory" rather than the value on the lien -113- Taxes and Assessments Committee ,i. date require the implementation of state legislation. We ask that the Board of Supervisors continue to urge our legislators to in- troduce and support legislation necessary to change the lien date. �! Properties Receiving "Preferential" Tax Treatment Certain properties are granted "preferential" tax treat- ment under Constitutional Provisions voted by the people, and other properties by the State Legislature. See Appendix III for partial list. The list may not be complete, but we feel we have mentioned the major ones. This practice results in a shift of the tax burden and it generally falls on those least able to pay -- the home owners. Annually the legislature is requested by special interests to give "preferential" tax treatment to certain groups, and the list of properties in this class is growing at a steady rate. Reduction of Utility Assessments by State Board of Equalization The assessment of utility properties for tax purposes is extremely complicated. Therefore, the average taxpayer does not readily understand the process and as a result is most confused. 1 To further complicate matters, the State Board of Equalization uses one formula to assess utilities and County Assessors employ another to arrive at market value of locally assessed properties. The use of two methods of evaluation add to the confusion and lead to inequities between board assessed and locally assessed properties. The Committee felt it did not have the time nor the itechnical skills and experience to make a thorough study of the appraisal and assessment procedures followed by the State Board of -114- Taxes and Assessments Committee Equalization in assessing utility properties .erties . Inasmuch as this is an involved evaluation and equalization process that is- adversely affecting the County tax base, we thought- it was best to quote directly from the language of the County Assessor, Mr. Fred Wanaka. "It is extremely difficult to estimate the tax loss. attributable to the reduction in utility assessment ratios because of changing methods of allocating the value of that portion of the whole state unit assign- able to Contra Costa County, and determining, what assessment ratio the State Board of Equalization has used in prior years. However, changes in allocating value between .the counties of California appear to be relatively minor when compared to reductions .in utility assessment ratios. "Part of the answer for the reduction may be found in the attached assessed value tabulation. It shows , comparative values and growth rate in percentages for the local roll and utility roll for the decade from 1962 through 1971. (Appendix I) -This presents a graphic display of the effects of the State Board of Equalization's actions in reducing the assessment. ratio it employs and, during at least part of the period, changing the allocation ratio between several counties on a major utility installation in Contra Costa County. . Since utility growth is dependent upon goods and services it must furnish a growing state, it would seem i that there should be some correlation in growth factors i -115- Taxes and Assessments Committee jof local and utility property. "It has been only in recent years that the State Board of Equalization has announced publicly the assess- ment ratio used in its assessments . Prior to the time it started reducing its assessment ratio, the Board generally conceded that it was using a ratio of 50%. The announced downward trend in the Board's ratio began in 1965 and has reached a level of 29% for the 1971-72 tax year, down from 31% for 1970-71. It is possible, however, that the downward trend began prior to this time, but is not apparent on the attached chart because of substantial amounts of utility construction during that period. "We have used two methods to estimate the tax loss to Contra Costa County because of the change in the policies of assessing utilities . Admittedly more accurate estimates could be made, but it would require considerable time and effort beyond that which is available from this department with no assurance that the time and effort would have any effect upon present policies of the State Board of Equalization. "Referring to Appendix I, you will note that the assessed value of all public utilities for the 1971-72 tax year amounted to $171,329,540. Had the State Board of Equalization not reduced the ratio from 50% to 29%, the assessed value for the current year would have totaled $295,395 ,758, a loss of $124,066,218 in assessed _116- Taxes 116-Taxes and Assessments Committee value. Using a $12 . 56 composite tax rate* for the 1970 year, this would amount to $15 ,582,077 loss in tax monies. "Since 1962, the assessment roll prepared by the Contra Costa County Assessor has increased 112. 8%, while the utility assessment roll prepared by the State Board of Equalization has decreased 7 . 08%. Had the utility roll grown at the same rate as the local roll, the assessed value of utilities would be $220,496,405 more than it is today. Additional tax monies available on this basis would amount to $27 ,,694,348. "Previously, the Board of Supervisors of Contra Costa County directed the Assessor to review the appraisal and assessment procedures employed by the State Board of Equalization with respect to utilities . I have included copies of these reports to give the Taxes and Assessment Committee further insight into the problem." (See Appendix II) From the above certain conclusions may be drawn with re- ference to utility assessments . The reduction by the State Board of Equalization of the ' assessment ratio for utilities is having a significant effect on the county property tax base. The shift in the tax load from State Board of Equalization assessed properties to locally assessed properties appears to be quite substantial, and seems to have fallen most heavily on the home owner ., Although utilities have received a huge tax "windfall" -117- Taxes and Assessments Committee it has not reflected in 1ower' utili.ty rates for the consumer. Instead, recent experience tells us that rates have been sub- stantially stantiall increased. The present formula used by the State Board of Equaliza- tion in arriving at market value differs from the method used by ' County Assessors in evaluating locally assessed properties. This difference in valuation may result in lower assessments and in a tax break for utilities. Changing methods of the State Board of Equalization unitary ratio in allocating value among the counties could result in the loss of additional assessed value to Contra Costa County. *In order to simplify the calculation of the tax which would be derived from this amount, we resort to the use of a county wide composite or average 1970 tax rate of $12.56/$100 assessed value. This rate is computed by dividing the total net taxable value in the County into the total property tax levies . i . 1 1 -118- Taxes and Assessments Committee RECOMMENDATIONS i 1. We concur with past Grand Juries and recommend the State Legislature change the lien date from March 1 to January 1, and that the average inventory value be used for taxing purposes . 2 . Many Constitutional Provisions voted by the people, have granted preferential tax treatment. Steps should be taken .to better inform the voters of all aspects involved and stress how it may affect individual home owners for any future Constitutional Amendments . Revenue and Taxation Code provisions, passed by the Le islature� g g rantin preferential tax treatment of certain g properties should be reviewed to determine the tax effect on home owners . If the study reveals a shift of the tax burden to home owners has occurred, the State Legislature and the Governor should take immediate steps to repeal these Revenue and Taxation. Code provisions . 3 . We recommend the method of establishing market value of utility properties by the State Board of Equalization be more uniform with the formula used by County Assessors . We further recommend , that the present utility ratio of 29% be maintained until valuation uniformity mentioned above is achieved. -119- Taxes and Assessments Committee �.( .q(I O ri t•1 O SJ N rt N H N i 1•I l:�� i/� M � O t.t � O•\ N M u7 N •O. r-1 ..1 N o6 y • e • • o �.� r; N 00C- 143 m (� � � p p r^�1 U, �O-{ OIN r O P, N I M m- O 1 C3 c, rl n CO u) r1 u) O, .7 (1% N ^ O 1-1 pq •• co ,-'1 m a) V\ N � O N O H N /] p'a C W ri N 00 OD K) N M U-% V\ N O ( w w w 1 w w w w ,yw O fe U M H r 1 0 1 1 1 1 tI7 a k . VA 1A NH o � ri r♦ r �O N r O, H V O H 10 O (Y' 1�•A- -4 U\1O � ��V �a E� r O N O co O'� (`', N •O .7 rl Q' E �O (l a) (n ri 1O ,O M O� 4-) . w w w w w w w w b M m - � ('� N O, m r O\ M N N N O 1,J ` V\ m 00 o. o. rj oh r4 r •r4 rl 7 O O a o In in \r\ o ry hJ h,v o -03 . O C%j co r♦ m I. O\ a0 ON - V\ r- M N M O •O oU N V\ rt •rl 1 U W O, n) (1, 7 (`- - O N (T r', 1 1I M O (n cn O 1 1J r N O r-I m .Z1 (!\ in O, 00 O. d r m rl N u\ 'O O\ m rC. -4HO-i - r01 m m rl ri r-'1 \/ r'•i I N E 11 to w 03 1 (O•\ rel In 14 'O m 10 (V O- r( O rl t1) r4 c0 O• N c0 [d ,�AA •O M N O, N M O, N O V\ a o., o. O. r- \v rl m m 1-1 .-► ? H ''d O 0 C ACh ch O .4 H O .Zt V\ Nw w w w w w w . ..� rn H .ZI '0 N N 'O kA (may ca Ea . O r--1 N M -1 V� �O r m �, (n H n� w w w w w w w w p r1 (: U 4�F-i G I- rl A H r� r1 r1 rl r 1 c) �• 11. to o N 41 n5 V' arl 0 ..O� - O0 W ., H o M P �1 - � CIf ) I O V V) 0 r-4 OU 0O O O O M �0 •O O In V\ H 4l U o. %S rz CIO %.i w w w w w % �7 N 114 s 2 N a0 V\ �O -r N N M r-1 r O� N b _t N CO In r-i N r (n r1 H M N: 4-1 to F• CO O, O% M N -O r-1 "'!t -:1t r .J m M' N•d. a-J �O r m n w w --1 'O M N r.4 r M 0\ V\ .ri O r1 In En CO m O\ O\ O, m m r - N N. U 40 40 Cl) w N w w w w w w W H r- �ol O. •Ow U\ O� rl r M O M M ri ri li . n w w w � w w w �s 0 ca co 14 U[e+ O, XA 114 10 N V\ m 00 O\ O, CO �1 N m O, O rl N M 7 V\ •O ti H H \ O • In 0 Ill co N .3 10 N -1 C1 000 0 W M %O m r1 N0 F O U ' p po ,V�-A-{ O Lppn O U a CK j O r-1 O •D O lh O� N •O w w • r- W -N O, `O Q) O N In 4)r O \n J M 1 O. O N O ?�a r _:/ r H N w M ri rl re-1 1 V 01 O ri + In ^ V1 NO rl r-1 4 r- A A rl Ol's1 0001 to Q'1 (1• f�� ri "� •1, it vS O .A O (l {- N N� fR 01 u, l11r cl. (T + r ) 1 .•1 rl r/ r1 r-1 r1 (8 rl H APPENDIX II OFFICE OF THE COUNTY ASSESSOR t Inter-Office Memo s TO E. F . Wanaka DATE: October 28, 1963 FROM: A. W. Glendinning A. J. Lagorio SUBJECT: Inquiry Report of State Assessed Utility Assessment Roll In compliance with Resolution No . 2157 of the Board of Supervisors , A. W. Glendinning and A. J. Lagorio of the Assessor ' s , Department have again reviewed the State Board of Equalization' s practices of assessment for the public utility roll. L. J. Eastman, Chief of the Valuation. Division, State Board of Equalization, pro- vided the necessary assistance. The results of the investigation are indicated as follows : Consistent with the apparent State Board policy of "equalizing" the utility roll, it appears that the Board is continuing its practice of gradually reducing the assessment ratio of State assessed properties . It is indicated that this policy may continue indefinitely or until the Board feels that the proper degree of ,equalization has been achieved. It may be further assumed that future utility growth will tend to offset the declining assessment ratio, and that the Board policy may be to reflect a slight gain over the previous year ' s assessment roll and to adjust the assessment ratio to market value accordingly. It was stated that, with normal county growth, the Board roll would in all probability level off at approximately a one or two percent gain per year. "Equalization" of the Board' s market value ratios for taxable tangible utility property is still in its infancy. A reversal of the trend can only occur through a change of Board policy, a change in the Board' s methods of market value evaluations, or a fantastic over-night growth of the public utilities. In the actual inquiry, investigation again was directed to the Pacific Gas and Electric Co . , the largest taxpayer in our, county. The survey revealed the continuation of the Board policy to "equalize and reduce the assessment ratio" of utilities . In its 1963 appeal to the State Board of Equalization, Pacific Gas and Electric affirmed that "several years ago we were quite hopeful that you were embarking upon a program of gradual equalization and, indeed, our studies indicate that you were doing so. A similar study of our assessment -121- Taxes and Assessments Committee for the taxable year 1962-63 indicated that the Board was again beginning to work toward gradual equalization. We strongly urge that the Board continue in this program so that equalization can gradually be achieved. " Board valuations are segregated between two classes of 1 property, unitary and nonunitary. Unitary property consists of the integral operating network of the utility; i.e. , the unit of pro- duction. This property is valued as a whole, and the assessment is then allocated to the various counties in proportion to their share of the unit. Nonunitary property is nonoperative or not essential to the operation of the utility. It consists of pipelines , leased facilities, vacant land, etc . Nonunitary assessments are made individually to the county where the property is situated, and no allocation is necessary. ' A few years ago , it was established that the Board was assessing all property at a ratio of 50% of its opinion of market value. Members of the Board have recently expressed the use of approximately a 45% assessment ratio, and we are led to believe that unitary property may currently be assessed within a range of 42 - 45% of value. 1 The assessment ratio of nonunitary properties has been reduced from a 30% ratio in 1961 to a current minimum of 25%. The local assessment roll has shown a consistent annual I growth of 7 over recent years . Conversely, the annual growth of the Board roll has diminished from 8% in 1960 to a subsequent low of less than 1%. It is apparent that the "gradual equalization" from approximately a 45% assessment ratio may continue for quite some time. "Equalization" of the Board roll has had a disturbing effect on Contra Costa County' s utility assessment . Normal economic growth of the largest state of the Union presupposes similar economic growth of service industries within the State. In the case of Pacific Gas and Electric, it has been publically stated that signi- ficant growth had occurred in the past year. However, the policy of the Board has not made this evident in the assessment roll. Procedurally, the Board resolves the market value of a utility, determines the ratio, and , submits the assessed value to the Valuation Division for allocation to the proper taxing jurisdictions. The allocation ratio is determined by dividing the unitary property. assessed value by the replacement cost less depreciation value of the unitary system. In spite of the economic growth of the Pacific Gas and Electric, the allocation ratio decreased from 30. 785% in 1962 to 30. 121% in 1963, an over-all decrease of 2 .2%. Using the 1962 assessed value of the Pittsburg Steam Plant, the 2 .2% decrease in the allocation ratio would have resulted in a loss of over one million dollars of assessed value in that particular code area. New construction reduced this loss to $800,000. "Equalization and the reduction of the assessment ratio" will continue to have far-reaching effects upon the State utility assessment roll. A compensating effect -122- Taxes and Assessments Committee 1 in an individual county may be the degree of new construction and, consequently, the degree of allocation which that particular county may receive. The Contra Costa (Antioch) Steam Plant continues to be an exception. ' Following the recommendation of the Joint Interim Committee on Assessment practices , May 1959, the Board has been attempting to adjust the "overallocation" of value at the Antioch Plant. Although other unitary property assessments were being allocated at 30. 8% of replacement cost less depreciation in; 1962 , the Antioch Plant was still allocated on a 36% basis . Expansion of the Antioch Plant permitted the State Board Valuation Division to adjust this allocation ratio as painlessly as possible. The current allocation ratio of the Antioch Plant was reduced from 36% to 32 .43% of its replacement cast less depreciation. Conse- quently, the 1963 assessed value of $33 ,827 ,000 reflected little change over the $22,826,740 assessed in 1962, and Contra Costa County received little or no assessed value increment on the 19- million dollars invested in Antioch during 1962 . It is forecast that similar adjustments will be made to the Antioch Plant alloca- tion ratio in the future. In summary, it has been stated factually that the Board is "equalizing and reducing the assessment ratio . " This policy should result in a declining rate of growth of the State utility roll. An optimistic forecast is for one or two percent annual increase in Contra Costa County's utility assessment. Even this prediction is contingent upon substantial utility expansion within the County. ' The Contra Costa (Antioch) Steam Plant assessment is being adjusted to conform with other unitary property allocation ratios . Future expansion will be offset by a declining allocation ratio, and no appreciable increase in assessed value can be anticipated within the immediate future. AJL: imk NOTE: The foregoing exhibit has been recopied exactly from the original document for use in this report. -123- Taxes and Assessments Committee I OFFICE OF THE COUNTY ASSESSOR Inter-Office Memo i TO: J. P. McBrien DATE: October 28, 1963 1 County Administrator FROM: E. F . Wanaka ICounty Assessor SUBJECT: Review of Procedures in State Assessed Properties Attached is a copy P Y of a report made b A. W. Glendinning and A. J. Lagorio concerning their current investigation of the assessment of utility properties. It would appear that the appraisal and assessment pro- cedures followed by the State Board of Equalization are consistent with those of last year and also consistent with their announced procedures of gradually reducing utility assessments. This is further evidenced by the gradual reduction in the ratio of State ' assessed property to the entire assessment roll. 1955 26.22% ' 1956 22 . 66 1957 21.43 1958 21. 19 1959 20. 95 1960 20. 08 1961 19. 99 1962 18. 90 1963 17 . 85 In summation, we may conclude that there will be: 1. A continued shift in the tax burden from State assessed properties to common property owners caused by a reduction in assessed values of existing facilities of the various utilities . 2 . A reduction in the allocation of the total state-wide assessment of given utilities to Contra Costa County will further reduce assessed values in Contra Costa County. 3 . Continued emphasis on income which because of statutory ceilings, is the lowest indi- cator of value. -124- Taxes and Assessments Committee I The heart of the controversy continues to center around 1 the question of whether or not a monopolistic industry which is subject to an additional governmental regulation should, because of this , enjoy a different treatment of the valuation concepts than private industry. NOTE: The foregoing exhibit has been recopied exactly from the original document for use in this report. -125- Taxes and Assessments Committee 1 3/14/67 An Outline of the Procedures Followed by the California State Board of Equalization in the Allocation of the Unitary Assessments of State Assessees to Taxing Jurisdictions Section 14 of Article XIII of the Constitution says , in effect, that the Board of Equalization shall value and assess the properties of utilities and railroads , and then further, "all property so assessed by the Board shall be subject to taxation to the same extent and in the same manner as other property". The Constitution tells the Board what to do , but not how to do it. The values of public utility and railroad properties are determined on a "unit" basis, and it is repugnant to the "Unit value" theory to attempt to assign portions of the unit value to the component parts of the unit. However, it has to be done if the Board is to comply with the requirements of the Constitutional provisions, that is, the unit value has to be allocated to the situs of the component parts so that the properties may be "subject to taxation to the same extent and same manner as other property". While an allocation procedure has to be more or less arbitrary, it is almost axiomatic that the allocation of the unit value to each of the component parts should be, as nearly as possible, in proportion to the amount that the part contributes to the earnings of the company, as earnings are the very essence r of value. In light of this, the Board feels that the unitary assessed value should be allocated in proportion to the reproduc- tion cost new less depreciation (RCNLD) of each component part of the property. Others feel that the allocation should be in pro- portion to the historical cost less depreciation (HCLD) rather than RCNLD. The reason that the Board feels that allocation on the basis ' of RCNLD is more valid can be explained best by an example. Suppose that two identical hydroelectic power plants were constructed by a power company, one just before World War II and one immediately after, when the average price levels were almost twice as high. Each plant is generating the same amount of power and will continue to do so for practically the same number of years in the future. Each plant is going to produce practically the same total amount of a saleable product between the present time and its retirement date. That is each plant' s production, and hence its contribution to the company;s total earnings, is practically the same. However, if the unitary value was allocated in proportion to HCLD, the pre-war power plant would have only about one-half the "allocated assessment" that the post war plant would have. If the allocation was made upon a basis of RCNLD, the "allocated assessments" would be practically the same, which is patently more equitable. Those that support allocation in proportion to HCLD, do so mainly on the basis that, in California, HCLD is the amount -126- Taxes and Assessments Committee upon which the utility is allowed to earn. HCLD, or rate base, is an amount that the regulatory commission considers only in the aggregate in rate determination. The rates determined are supposed to insure an adequate return on the amount originally invested that still remains in service and to insure a return of the original investment by the time the property has to be replaced, that is, to preserve the integrity of the investment. Other bases of allocation have been suggested, most of which involve physical units instead of dollar figures . For example, for electric companies the unitary value would be allocated to situs in proportion to conductor-miles, or for a railroad, in proportion to track miles . While some states do allocate value in this manner, there is not much to recommend the method except ease of application. The actual mechanics of allocation of the unitary value under the Board' s present procedure are somewhat laborious , but not too complicated. The assessees are required to file property statements each year in which they list all their property in each county by location segregated to tax code areas . Cost is associated with each item in the listing, or can be determined readily from associated reports. Tax code areas are geographical areas in which a common combination of tax rates is applicable to a given I class of property (that is land, improvements or personal property) . Prior to the time of the filing of the property statement by the assesses, the Valuation Division of the Board has made reproduction cost new less depreciation studies from which the RCNLD of each item listed in the property statement can be deter- mined. The basic information for these studies obtained from the companies ' accounting records , is dollar-age information--a segre- gation of the dollars invested in tangible assets by year of in- vestment . This information results in a determination of remaining dollars invested in the property by year of placement for each reported item. By use of "cost factors" the Division trends these costs up to present price levels , arriving at an estimate of what ' it would cost to reproduce the items of property today. Based on the date the property was put in service and on lives estimated by the Division, appropriate amounts of depreciation are determined and the final RCNLD s are arrived at by items . The Valuation Division maintains on a current basis over seventy different "cost factor" or price-trending curves, each of ' which is applicable to a different class or type of utility of railroad property. The information for constructing these curves is obtained from many sources , such as actual comparative costs from utility companies , costs and cost indexes furnished and published by the Interstate Commerce Commission, Engineering News- Record, Marshall & Stevens Valuation Service, Whitman, Requardt and Associates , Oil and Gas Journal, Railway Age, E. H. Boeckh and Associates, etc. The lives used in depreciation determinations are also based on many sources of information, but mainly on ob- served ages of utility and railroad properties at time of retirement -127- Taxes and Assessments Committee ' and, more importantly, on application of mortality curves to gross addition and retirement data of properties of utilities and rail- roads consisting of many similar units . The condition percent tables used for depreciation calculations by the Division are based on present worth principles (using sinking fund formulas) adjusted for reduced productivity with age. ' The actual allocation calculations are somewhat as follows : By consideration of the indicators of value, historical cost less depreciation, reproduction cost new less depreciation, capitalized earnings, and the market value of stock and debt , furnished by the Valuation Division to the Board for each assessee, the Board determines the unitary assessed values . The unitary assessed values are than submitted by the Board to the Valuation Division for allocation to taxing jurisdictions and preparation of Board Rolls for each county and for each city having its own assessor. The Division compares the total unitary assessed value of the properties of a particular assessee with the total RCNLD of the same properties as determined by the studies mentioned above. Suppose, for example, the Board' s unitary assessed value is $3 ,500,000 and the comparable total RCNLD is $10,000,000. The ratio of assessed value to RCNLD then, is 35%. If the allocated assessment of each item listed in the assessee' s property state- ment is found by multiplying the RCNLD of each item by 35%, and then all the allocated assessments are added up, they will total $3,500,000, the total unitary assessment fixed by the Board. rThere are some deviations from the strict policy of allocating assessed value of the unit by application of the ratio of the assessed value to RCNLD. Certain properties which are not 1 of a special-purpose character (e.g. land and material and supplies) are first segregated from the unit value and are given an allocated assessed value that is equal to the respective products of their appraised value and the ratio of the assessed value of the unit to the appraised value of the unit. Then, after the total unitary value is adjusted by the total allocated assessed value of these ' non-special-purpose properties , the remainder is spread to the component parts in proportion to RCNLD, as described above. The allocated assessments of these non-special-purpose properties is a comparatively small percentage of the total unitary assessed values. 1 It probably should be mentioned that non-unitary properties of state assessees do not present an allocation problem. This type 1 of property consists of non-operative properties, that is , properties owned but not used in the primary function of the company, such as lands owned by a railroad but leased out for agricultural purposes, properties leased from others by the assessee, possessory interests, and money. These items are listed in the property state- ment of the assessee by tax code areas , and the Valuation Division determines the market value of each item separately. Assessments ' for these properties , which are 25% of market value, are recommended by the Division to the Board for adoption. NOTE: The foregoing exhibit has been recopied exactly from the original document for use in this report. -128- Taxes and Assessments Committee 3/i4/67 An Outline of the Principles Adhered to and the Procedures Followed by the California State Board of Equalization in the Valuation of the Unitary Properties of Public Utilities and Railroads For Taxation Purposes In the Revenue and Taxation Code, value is defined as follows: _ "'Value' , ' full cash value' , or ' cash value' means the , amount at which property would be taken in payment of a just debt from a solvent debtor. " Fundamentally, this is the same as the somewhat expanded definition of value that the Committee on Unit Valuation of the National Association of Tax Administrators included in its report on "Appraisal of Railroad and Other Public Utility Property for Ad Valorem Tax Purposes", published in 1954 . In its report the committee defined value for tax purposes as follows : "'Value for tax purposes ' is the price at which a property t could be sold at a given date if the seller had ample opportunity to seek out the highest bidder, and the bidders , in turn, had ample opportunity to inform themselves of the characteristics of the property and to ascertain the terms upon which alternative proper- ties, if any, could be bought. It is not the same thing as cost, although the two tend to be equal at the time the cost is incurred. ' It is not the same thing as 'value for rate-making purposes ' although the rate base established by a ,-regulatory agency tends to equal the value for tax purposes if the utility is able to earn what the agency regards ' as a fair return and no more, and the agency's concept of a fair return coincides with that of the in- vesting public. Value is not necessarily the present worth of the future income actually to be derived from the property, nor is it necessarily the present worth of the assessor' s own best estimate ■ of the future income; it is the expectations of investors which govern values , even though they may differ from those of the assessor. " The Board subscribes to this definition of value and in the valuation of the operative properties of state assessees ' endeavors to use principles and follow procedures that conform to this definition. To the extent possible, the Board' s valuations are unit appraisals , that is, appraisals of integrated properties as a whole without any reference to the value of the component parts . Complete new appraisals .are made each year. In making unit appraisals of utility and railroad properties, four main indicators of value are developed, not all of ' which are available for all properties . These indicators are: -129- Taxes and Assessments Committee 1. Historical cost less depreciation 2 . Reproduction cost new less depreciation 3 . Capitalized earnings 4 . Stock and debt value The Board is also supplied with other data bearing on value, 'where appropriate. Historical cost less depreciation is considered to be a very important indicator of value for gas, electric, and telephone companies because it is comparable in California to the rate base, the amount upon which the regulatory commission allows the utility to earn what it considers a fair rate of return sufficient to pro- vide adequate service to the consumer and to attract necessary additional capital investment. It is not an important indicator of value for railroad properties, however, as most railroad com- panies , by reason of the competition to which they are subject, are unable to charge enough to make a fair return on the net in- vestment in their properties . This indicator includes some amounts ' that are not included in the rate base and excludes some that are included. For example, it includes Donations in Aid of Construc- tion, which is excluded in the rate base, as there is nothing in the revenue laws of the State that excludes this property from taxation, and excludes "working cash", which is included in the rate base, as this is an intangible and the Board's unit assess- ments include only tangible property. The depreciation which is deducted from the original cost is the book depreciation, since this is the amount that has been deducted to arrive at the rate base. It might be well to point out that if a public utility is sold, the price paid by the new owner does not become the rate base. The rate base continues to be the original investment ' (minus depreciation) in the property made at the time property was first devoted to public use. Reproduction cost new less depreciation is not considered to be an important indicator of value for unitary state-assessed property. No prospective purchase, it is believed, would consider paying an amount equal to the reproduction cost new less deprecia- tion of a gas, electric or telephone company when it greatly ex- ceeds the historical cost new less depreciation upon which the regulatory commission would allow him to earn a "fair" return. For railroad properties it is meaningless because of the existence of the great amount of obsolescence and other functional in- efficiency in the properties . However, this indicator is regarded as a ceiling for taxable value.- The California Constitution ' exempts franchises from property tax, and it is considered that any value greater than reproduction cost new less depreciation is franchise value . As earnings are the very essence of value, the Board feels that capitalized earning value is one of the most important ' value indicators. In capitalizing earnings , the Board seeks to -130- Taxes and Assessments Committee find the value to a prospective purchaser--the amount that the prospective purchaser could pay for the property and have the original cost returned to him by the time the property is worn out , with interest on his investment until it is fully returned. The Board capitalizes three different amounts . The first of these is net operating revenue before depreciation. . The reason for not deducting depreciation is that the present owner' s deprecia- tion charges are for writing off his investment and are not necessarily an accurate statement of the yearly loss in the present worth of the future earnings . In capitalizing before depreciation, the Board adds an increment to the basic capitalization rate that will provide for a return to the purchaser of his, investment by the expiration of the calculated composite life expectancy of the property. This increment provides for depreciation of the invest- ment of the prospective purchaser, or return of his capital, not of the present owner ' s cost. The Board does not capitalize net earnings after depreciation, that is , in perpetuity, as this would produce the same appraised value for an old property that has a life expectancy of one year and for a relatively new property that has a life expectancy of, say, 25 years. , In capitalizing before depreciation, the income taxes are "normalized" by adding back into the stated amount of taxes any ' reductions due to rapid amortization, accelerated depreciation, and investment tax credit , as they would not be available to the pur- chaser of the property. Also, any amounts that are due to adjust- ments of prior years ' taxes are eliminated. The second amount the Board capitalizes is net operating revenue before depreciation and income taxes . The rate for capitali- zation at this point is the basic rate, plus increments for depre- ciation and for income taxes. The income tax increment is obtained by the use of- a' formula that takes into account the effect of the ' depreciation charges and the probable capital structure of the pro- spective purchaser , using the assumption that the capital structure will be the same for all companies in a given class . The Board , feels that , -say, a railroad does not have a greater value than another simply because it has more indebtedness and therefore has a smaller income tax obligation, other things being equal. The third amount that the Board capitalizes is net before depreciation, income taxes, and ad valorem taxes. The total capitalization rate in this case includes an increment for ad , valorem taxes based on the total taxes. levied on the previous year' s assessed value divided by the previous year ' s market. value. This in effect bases ad- valorem taxes on the value being found rather than on the value that served as the prior year' s tax base. This increment can be accurately determined only for an intrastate company and is only used for such companies . The Board considers the capitalization of this earning figure the most reliable of its capitalized income figures . The basic capitalization rate used in earning-value -131- Taxes and Assessments Committee 0 ocalculations is determined by the Board on the basis of current rates of interest or return which the prospective purchaser would have to pay on the various types of securities with which he would finance his purchase. The capitalization of past earnings is a valid indicator 0 of value only if the past earnings reasonably reflect, in the judgment of the appraiser , what the earnings will be in the future. For this reason, the Board adjusts earnings before capitalizing to remove the effect of any nonrecurring losses of income, and to take into account any increase in income that can be reasonably expected, such as that due to future rate increases. The Board capitalizes a five-year average income for companies with little or no capital expansion such as railroads, but for growing companies such as gas , electric, and telephone companies, the Board feels that only the income of the latest year is pertinent, as the income of any prior year does not reflect the income from the presently existing property, the property being valued. The stock and debt indicator of value is derived for all companies whose securities are traded on the market in substantial , volume. The market value of the outstanding equity securities and debt obligations, plus the market value of the current and deferred liabilities, establishes the gross stock and debt value. To obtain the market value of the tangible unitary property, all assets that are not part of the unitary property or are not assessable whose o value is reflected in the market value of the liabilities must be deducted. These deductible items consist of such property as accounts receivable, nonoperative properties , sinking funds, stock o and bonds of other companies , and licensed motor vehicles. The average prices of securities for the previous twelve months are used for current value determinations, as this period is believed o to be sufficiently long to smooth out the effects of any momentary extraneous influences on the market, but not too long to reflect the current opinion of value in the market place. oIn the final determination of market value, the Board does not use a formula to weight the various indicators of value, but gives such weight to each indicator of value for each assessee oas appears to be justified by all the facts in its possession. o . NOTE: The foregoing exhibit has been recopied exactly from the 0 original document for use in this report. 0 0 -132- Taxes 132-Taxes and Assessments Committee APPENDIX III ' CONSTITUTIONAL PROVISIONS Article XIII Section 160 et seq . Taxation of Publicly Owned Property. Reference here is to the East Bay Municipal Utility District . Property of municipal districts is exempt where those properties lie within the district boundaries . Until recently, the method of assessing the properties located outside the District was , similar to other properties . In the last election, a Constitutional Amendment was passed prohibiting the assessor from increasing the .value of those lands lying outside the District by any percentage greater than the population increase. Said factor is to be computed by the State Controller . Therefore population does not reflect a ' full measure of the increase in property values .. ' Article XIII Section 2.6. This Section provides that private non-profit golf courses shall be assessed as golf courses rather than according to the market value of the land. It is discriminatory in that it allows country club golf courses to be assessed at a lower rate than a public golf course. Article XIII Section 14-4/5 (Taxation of Insurance Companies) and Section 16 (Taxation of Corporations) refer to the ' taxation of banks and corporations . Banks and insurance companies pay a State tax measured on their return which is in lieu of ' certain property taxes. Article XXVIII - Open Space Land. This provides .for , preferential treatment of real estate based upon its earning ability , rather than market value of the property. At the present, this exemption is not significant in Contra Costa County. However, there , -133- Taxes and Assessments Committee 0 ois action in the Legislature to remove many of the restrictions required to qualify as open space land. If this is done, there could be a substantial drain on local revenue as it is non- ereimburseable by the State. REVENUE AND TAXATION CODE PROVISIONS oSection 209.5 provides that vessels of more than 50 tons oburden are exempt from taxation while under construction. Other types of property are taxable while under construction. Sections 218 and 219 provide for homeowners ' $750.00 exemption and for 30% exemption in business inventory. Unless othere is legislation extending this 30%, it will revert to 15% next year. The monies lost by these exemptions. are reimbursed by the State. Section 227 .. Certain documented vessels, in particular fishing vessels, are to be assessed at 1% of full cash value oinstead of the 25% used for other properties . This is not signifi- cant in Contra Costa County at the present time. Section 988 provides that the value of motion pictures is the value of the tangible material, that is the salvage value .of the film itself. . This is not significant in Contra Costa County, but is a good example of preferential treatment . oSection 991. Baled cotton is taxed at 1/10 of 1% of its value. oSection 992 . When wine, winery products , or brandy products are manufactured in California by a licensed wine grower; they are subject to taxation only once while so held on the first day in March on which they are held immediately following production -134- Taxes and Assessments Committee .. 1 or manufacture. Section 5363 . Aircraft are to be taxed at 1-1/2% of the full cash value' as determined by the assessor. This is in compari- son to the tax of other properties which in general amounts to between 2 and 3-1/2% of market value. Sections 5501 through 5523 . This provides for the taxa- tion of livestock used for the production of meat for human con- sumption or fibre not including swine or dairy cattle or male P g Y animals held primarily for breeding purposes . The rate of tax im- posed is 5 mills per head a day that the animal is within the County. Not only has this substantially reduced the tax revenue ' from our largest agricultural industry, but it becomes an adminis- trative nightmare in attempting to enforce the law as it is written. i 1 t 1 1 -135- Taxes and Assessments Committee , GENERAL COMMENTS AND RECOMMENDATIONS FINANCING PUBLIC PROJECTS In the financing of public construction projects in this county there is a trend away from the use of public bond issues and toward the use of county-owned corporations . Bond issues must be approved by the voters; setting up corporations does not. We believe this to be a dangerous trend which will result in the loss of citizen control of the county government. The County Administration Building was erected through the use of such a corporation. Likewise, as the Probation Com- mittee' s report states, the current expansion of Juvenile Hall is being accomplished through another corporation. Very simply then, when the voters fail to approve a bond issued proposed by the Board of Supervisors , the Board turns to the use of a corpora- tion and goes ahead. Citizen control is circumvented. We recommend that the citizens of this county retain their control over the expenditure of large amounts of county funds. Either means of financing construction, bond issues or corporations , should be submitted to a vote of the people. It is the responsi- bility of our County Administration to gain support for necessary projects through proper in-depth education of the public. In conclusion, we recommend that an independent firm of management consultants be hired by the 1972 Grand Jury to investi- gate the efficiency of all departments of county government. This proposal is in addition to that made in the report of the Special Districts Committee relating to . the investigation of independent districts. -136- General Comments and Recommendations PRESS RELEASES CONTRA COSTA COUNTY GRAND JURY HOSPITALS, CLINICS AND SOCIAL WELFARE COMMITTEE Contact: Donald E. Perkins 235-2487 FOR IMMEDIATE RELEASE Contra Costa County taxpayers are losing hundreds of thousands of dollars every year because of inefficient use of medical equipment, facilities and specialists in county hos- pitals, the Grand Jury declared today. A report of the Grand Jury' s Hospitals, Clinics and Social Welfare Committee also complained that the committee did not receive direct, factual answers to many of its inquiries," and was "not taken seriously" by county departments being questioned. Committee members Edward L. Wilson, chairman, and Mrs . Bernice Lasell, Donald E. Perkins and Forrest J. Simoni also made these points: Hospitals and clinics -- The Grand Jury received several requests to investigate Brookside Hospital, which receives $750,000 a year in property taxes. The money has been used primarily to buy new equipment and supplement an operating deficit. Decisions to purchase new equipment appear to be based on convenience and comfort rather than true priority. Equip- ment is not being shared by other hospitals in the county. Several departments are operated on a profit-sharing basis with professionals or professional groups . "As compared to other hospitals, these contracts result in what appears to be very high fees for the professionals . In fact, one contract (more) -137- 2- has a $55, 000 per year minimum fee agreement. New laws must be introduced which will prevent professionals in district hospitals from using tax-supported facilities for a profit." Social Services -- Welfare has a very poor public image. , Aid to Families with Dependent Children is subjected to most public criticism some of which is well j ' P � Justified. The cost of welfare administration, $15,287,774, appears to be large. There was a lack of. productivity in many offices of the Social Services Department. "Many offices appear to operate in a very casual manner. This impression has carried over into the ' community -- there is a general feeling by the public that many employees . . .do not put in a full day' s work for a full day s pay.11 , County Hospital. -- Physical facilities are poor compared with the district hospitals. There appears to be very little cooperation between the County Medical Services, District ' Hospitals and Private Hospitals. Laboratory facilities at the ' Hospital are inadequate. As usual, the hospital is over its budget. November 10, 1971 -138- CONTRA COSTA COUNTY GRAND JURY Judicial Committee Contact : Leo Armstrong 525-3595 Res . - 232-7781 FOR IMMEDIATE RELEASE The Contra Costa County Grand Jury today urged Walnut Creek to upgrade its "deplorable court accomodations" and recommended against approving the addition of another superior court judge. (Legislation was recently passed approving this addition. ) "Our research revealed the cost of providing for the additional court would be $110,426 for the initial year, " the Jury' s Judicial Committee said. "In our opinion an alterna- tive should be sought since we were not certain that all of our present courts were operating at maximum efficiency. " The committee echoed the 1970 Grand Jury by recommending a "revamping of our entire court system. Procedures must be modernized so judges can cope with the rising tide of cases and such changes and improvements are long overdue. We are still working with 19th century tools in coping with 20th century problems . Our whole society has changed and, unfor- tunately, the courts haven' t kept pace with these changes . " Committee members Leo Armstrong, chairman, and Edson B. Fisher, Alymer B. Hussey, Sal Jimno and Arthur Read suggested adopting the "individual department calendar system" in which total cases pending are divided equally among available judges. (more) -139- ' -2- ' The committee also: Praised municipal court facilities in the county, with the exception of "the deplorable court accomodations in the beautiful city of Walnut Creek." It urged the city and county to "move expeditiously to provide the badly needed court facilities." Recommended reducing the number of jurors from 12 to 6 ' in misdemeanor cases, and requiring a jury vote of 10 to 2 to convict or acquit in felony cases. ' Recommended consolidating municipal courts to eliminate extravagances in some areas and hardships in others . December 6; 1971 -140- CONTRA COSTA COUNTY GRAND JURY LAW ENFORCEMENT COMMITTEE Contact: Arthur W. Read 689-7380 FOR IMMEDIATE RELEASE 4' Contra Costa County needs "real, honest, trained and fast ambulance services," the Grand Jury' s Law Enforcement Committee declared in a report released today. "What we have now is a farce," the report said. The committee also criticized the "country club atmosphere" of the Clayton Rehabilitation Center. "Work was being performed by paid workers while the taxpayers i of the county treated the inmates to a country club atmosphere," the report said, adding: "We believe the work can be done by the i inmates with a possible reduction in sentence." Committee members Arthur W. Read, chairman, and William C. Beck, Henry Cano, Grant F. Cotton, Sal Jimno, Richard J. Kerbavaz and Donald E. Perkins made unannounced visits to each police agency in the county, met with chiefs and other senior officers, attended police officer briefings and rode with beat officers. eGenerally, the committee concluded "there is a need for stan- dard police officer college training," and recommended that the Prilice Chiefs' Association study the possibility of setting up a curriculum for aspiring officers . "In all departments, inducement should be offered all ranks to improve their status by increased education." -141- (more) -2- Other committee observations and recommendations: Ambulance service -- The Department of Transportation will provide all the equipped ambulances the county needs free of charge. This has been presented before, but a few public offi- cials have declined to check out the possibility of a publicly operated ambulance service. Flea markets and garage sales -- Should be licensed by cities and county to curtail sales of stolen merchandise. Helicopters -- The Sheriff' s Department should operate a helicopter for the mutual use of cities and the county. On the beat -- All city managers , mayors, councilmen and county supervisors should become more knowledgeable about police operations . One way is to ride with a beat patrolman during busy hours . It is a new world and seeing is believing. Drunk drivers -- Municipal court judges should use city A jails for incarcerating drunk drivers in working off weekend punishments , and thus relieve Clayton Rehabilitation and the jail to handle the felon who needs more control. The drunk driver is not a hardened criminal and should not be treated as one. County jail .-- When the committee visited, the jail was 70 per cent over capacity, and 85 per cent of the inmates were awaiting trial. The county should inaugurate rehabilitation programs to reduce jail population. Additional holding facilities must be built as soon as possible. It is inhuman to operate under exis- -142- (more) i -3- ting conditions. Judges -- Most law enforcement agencies in the county feel that some of the judges of Contra Costa County are too lenient. In this day and age it is possible more weight should be put on the side of the people. We know of cases where a warrant carried high bail, and for good reason, but upon a bail hearing it was lowered to below what was recommended by both the People and the probation department. Giving probation on top of probation on top of parole from state prison is another area that needs more control. Walnut Creek -- The city needs to build a more workable police facility. Every time the sheriff' s bus unloads at the Municipal Court the city has a problem. It is very difficult to understand how the citizens can allow the police department to continue to try to operate in a facility outgrown 10 years ago while finding funds for other civic projects . -0- November 3, 1971 -143- i CONTRA COSTA COUNTY GRAND JURY 1 Public Works and Planning Committee Contact: Grant Cotton 935-2440 FOR IMMEDIATE RELEASE Personality clashes between airport managers, pilots and tothers connected with Buchanan Field, and "arbitrary" attitudes of County Planning Department personnel toward the public have been singled out as areas of county government that need immediate attention. The Public Works and Planning Committee of the Contra Costa County Grand Jury said in a report released today that friction and misunderstandings are created in airport opera- tions because the Airport Liaison committee reports to the Board of Supervisors and the airport manager reports to the Public Works Department. "There is a definite clash of personalities between manage- ment, aircraft owners, fixed based operations and the Public Works liaison personnel," the report said. "After meeting with members of the Liaison Committee, it is rather difficult to separate the wish to improve airport service from troubles that stem from personal dislike of the airport manager." The report, submitted by Grant Cotton, chairman, and William Beck, Peter A., Veitch and Arthur Wagstaff, said: "Installing a new manager would not necessarily improve the efficiency of the airport, nor would it attract new industries -144- (more) -2- and business, unless he had complete control and was respon- sible to an Airport Commission appointed by the Board of Supervisors." The committee recommended that the Board of Supervisors place the airport under management of a special airport dis- trict to supervise Buchanan and any future airports. the The report criticized/Planning Director , as "not close to the situation and not aware of some of the problems of taxpayers. . ." P It said continuing citizens ' complaints made it necessary to investigate the department. t1We talked at length with individuals, builders both large ge and small, contractors and trade organizations representing these people," the report , continued. "Without exception they all seemed to feel there was a definite lack of public relations or understanding emana- ting from the Planning Department. The impression is definite that on many occasions an arbitrary attitude is adopted by personnel dealing with the public." The committee recommended a reorganization of the depart- , ment, which "if it is to' function properly must have stronger and more capable management." -0- November 23, 1971 -145- , CONTRA COSTA COUNTY GRAND JURY PROBATION COMMITTEE REPORT Contact- Alymer B. Hussey 689-2212 1 FOR IMMEDIATE RELEASE Members of the Contra Costa Grand Jury' s Probation Committee who visited the county Juvenile Hall in Martinez were "ashamed and embarrassed" by the inhuman, crowded, jail-like conditions there. The Committee recommended that unless county officials 1 begin to place more emphasis on rehabilitation instead of on detention, they "should be replaced by men with deeper perception, more flexibility and greater foresight." "Locking a boy into one of these cells is not a first step toward his rehabilitation; it is more likely to be a step toward more serious offenses against society in the future," says the Report, which was released today. After noting deficiencies in Juvenile Hall and county ® probation facilities, the, Committee concluded there is "too much ■ emphasis on jails and detention facilities and not sufficient effort made in treating delinquency by means that lie outside such facilities." The Report says the county administration' s "stubborn" insistence to build larger detention facilities is "quite out of step with the desires of their constituents ," who have repeatedly rejected bond measures to enlarge Juvenile Hall. -146- "The county has set up a non-profit corporation. . . to finance and build expanded Juvenile Hall facilities. We believe, this total disregard and circumvention of the will of the people is wrongand should be stopped." PP The Committee Report points out that the Probation Department also seems to be "enamoured of detention facilities as the most desirable first step in dealing with delinquent children. We do not agree. Such detention is necessary for only the most hardened and unresponsive delinquents, and they are a small �. minority. " , "The existing Juvenile Hall is large enough to house this type without further expansion if effective action is taken , to provide for other types in programs outside the Hall." By ignoring repeated requests for expanded rehabilitation programs the Board of Supervisors and Probation Department have r ■ shown they are "out of touch with the recent progress made in these matters and too set in their ways to change quickly enough , to- meet the present crisis created by rapid population growth and the concurrent .rise in crime and delinquency," the Report says . Along with its criticisms , the Committee also had high praise for the Probation Department, calling it "well set up and staffed with capable and dedicated people.` The, Committee noted, , however, that the department "is not adequately staffed to fulfill its- purposes. Probation officers are overburdened with cases and ' investigations .' The case loads of probation officers include both adults and juveniles, some requiring intensive supervision. The Report, released today (Thursday, Oct. 28) by -147- ' committee members Alymer B. Hussey, chairman and Leo Armstrong, William C. Beck, Mrs. Bernice Lasell and G. Stewart Paul, states the objective of the county' s probation system "should be the ' rehabilitation and return to society of the optimum number of juveniles and adults. . '. Reasons the system has fallen short, the Report says , are: 1 1. Failure of county group homes for boys and girls to furnish a "home-like" atmosphere, which is the purpose of the homes. 2 . Excessive cost of maintaining group homes such as Las Trampas Youth Village in Bollinger Canyon. "We recommend that plans be made now to phase out the Bollinger Canyon homes as early as possible and to replace them with equal or better homes where the boys can live and attend school in a normal community rather than in isolation. The need to eliminate this budget drain and taxpayer burden is critical and corrective action ought to be started at once." 3 . The run-down condition of the group homes, cottages and grounds. "It was obvious that the maintenance of this property is carried on barely above the level of neglect." " . . .an oppor- tunity for healthy work therapy and responsibility training is being missed." 4. The remoteness of the Boys ' Ranch at Byron, a t "minimum security facility of good quality with a capable staff." "We believe that another facility similar to Boys ' Ranch is needed in the western side of the county," closer to population centers. ' 5 . Overcrowded conditions of Juvenile Hall. The Hall -148- "falls short of providing a home-like atmosphere and is built and operated so much like a jail that we can only consider it to be in complete violation of the State Welfare and Institutions Code." 6. Inadequate staffing and excessive work loads in the Probation Department. 11Probation officers are overburdened with cases and investigations." "When such excessive work loads are assigned, as is done in Contra Costa County, something has to give." 7. The false economy of the Board of Supervisors and county administrator in cutting the Probation Department ' s request for additional positions by 77 per cent. ' 8. Failure of the county to utilize the Foster Parent program, a "tremendous asset to society. . . the only ones who can ' provide a true home atmosphere for such children." " . . .Foster Homes are the most effective means of rehabilitating neglected , g and delinquent children. We urge our county agencies to move forward expeditiously. . . to utilize the available Foster Homes to the fullest degree and to recruit and license more of them. " ' "Parsimony where the probation activity is concerned is clearly false economy. Crime and delinquency are increasing for ' a variety of reasons well known to all of us . The cost to society ' keeps rising apace. Only a small percentage of those jailed are beyond saving, but a great and coordinated effort is needed to , save the others. Effective rehabilitation, education and counsel- ing is the only practical way to solve this problem. The , organizational machinery for this purpose is set up and working but working at low speed and efficiency because of the financial brake that holds it back. r -149- , S "An adequateinvestment in rehabilitation now will be paid back in reduced crime and delinquency in future years." October 28, 1971 1 1 1 -150- ' CONTRA COSTA COUNTY GRAND JURY Special Districts Committee Contact: Fortney H. Stark, Jr. 937-3000 FOR IMMEDIATE RELEASE County offices and special districts in Contra Costa County, which use public funds ' to create jobs, are not providing a "fair share" of jobs to minority people, the Grand Jury charged today. A report released by the Special Districts Committee said county agencies lack a "positive fair employment program." An exception was the "concise and affirmative" hiring prac- tices of the three-county Bay Area Rapid Transit District, which ' the committee suggested be used as a model for other agencies . The committee interviewed 88 organizations representing over 25,000 jobs. It found that special districts wholly within the county, excluding those in the heavily-black cities of Richmond and Pittsburg, had a black hiring record of only 3.85 per cent. The minority population of the county is 7.4 per cent, resulting in a hiring disparity of almost 50 per cent, the report says . The overall statistics show 5.9 per cent black employment as opposed ' to 7.4 per cent population. Committee members Fortney H. Stark, Jr. , chairman, and Arthur Wagstaff, Peter A. Veitch, Donald E. Perkins and G. Stewart Paul, made the following observations and recommendations: (more) ' � -,151- _2- Public agencies dro not hiring minoritium in a proportioriatw manner. * Less than half of the districts have stated and universally understood employment policies with regard .to minorities. , * Few of the districts keep employment records which would help them monitor their minority hiring and promotion actions. The Board of Supervisors should take the lead in encouraging , county departments, agencies and district's to adopt affirma- tive minority hiring practice .statements, and require a , yearly minority employment report of all departments and districts within i.ts control.. "By taking a positive stand and following up .by means of written reports," the committee said, '"this county can be the leader in the spirit as well as the letter of the legal and moral responsibility to provide equal opportunities.:"' -0- November , l5, 1971 -152 - ' CONTRA COSTA COUNTY GRAND JURY Special Districts Committee Contact: Fortney H. Stark, Jr. 937-3000 ' FOR IMMEDIATE RELEASE The Contra Costa County Grand Jury today recommended making the position of county supervisor a full-time job, bound by strict conflict of interest and financial disclosure rules. The Jury, through its Special Districts Committee, also ' recommended an increase in supervisor salaries to reflect full- time status, and additional staff to help supervisors perform their work more effectively. The committee -- Fortney H. Stark, Jr. , chairman, and Arthur Wagstaff, Peter ,A. Veitch, Donald E. Perkins and G. ' Stewart Paul -- suggested that supervisors receive a salary similar to that received by state assemblymen ($19,200) and that a "strict conflict of interest and personal financial disclosure rule be drawn which would preclude a supervisor from ' earning income from any outside source other than personal investments held prior to being elected a supervisor." ' The report recommended providing each supervisor with an ' administrative assistant who would not be a relative, and adequate ' space and secretarial support for research purposes. ' (more) 153- -2- "We felt this would be more effective than expanding the , county administrator' s job," the report said. "The county admin- istrator must after all make five men happy" and often can only > PPY Y be a conciliator and arbitrator between conflicting interests . ' "He must stay in office through maintaining the good will , of the supervisors and the supervisors, therefore, cannot best serve the interest of their districts unless they have completely , independent research and analytic help," the report continued. We feel the spending of a little additional money would provide great benefits to the county in more thorough government analysis and, indeed, help the supervisors to respond more ade- quately to the wishes of the people in their districts ." _o_ 1 November 16 , 1971 I i -154- , t ' CONTRA COSTA COUNTY. GRAND JURY Special Districts Committee Contact: Fortney H. Stark, Jr. 937-3000 tFOR IMMEDIATE RELEASE The Contra Costa County Grand Jury today asked the Board of ' Supervisors for $25, 000 to be used for professional investigations of the East Bay Municipal Utility District and other public districts. Newspaper criticisms of Bay Area Rapid Transit District were attached to the report released by the Grand Jury's Special Districts Committee with the explanation that the news reports indicated "the extent of citizen unrest". "The Board of Supervisors has no power to conduct a thorough I investigation, and the Grand Jury has the power but lacks the time and the specialized talents and skills-to effectively investigate a modern-day transportation or utility operation, " the committee said. "We therefore request the Board of Supervisors to set aside an additional $25, 000 to be used for this purpose by the 1972 Grand Jury. " The report added that the relatively small amount spent now could result in much greater savings to taxpayers in the future. Committee members are Fortney H. Stark, Jr. , chairman, and Arthur Wagstaff, Peter A. Veitch, Donald E. Perkins and G. Stewart Paul. ' -0- December 10, 1971 1 -155- CONTRA COSTA .COUNTY GRAND JURY Taxes and Assessments Committee Contact : Forrest J. Simoni 232-6635 FOR IMMEDIATE RELEASE Special interests are obtaining tax relief at the expense of the property taxpayer, the Contra Costa County Grand ' Jury' s Taxes and Assessments Committee charged today. "Property taxes have reached the point where many of the retired, the aged, and the poor are driven from their homes in ever increasing numbers," the Committee report said. "If any property tax legislation is enacted, it usually results in a ishift of the tax load from special interests to the homeowner. Unfortunately the homeowners are not aided by high priced lobby- ists as are special interests. The net result is in most cases ' that the special interests obtain preferential tax treatment at the expense of the homeowners. "The hour is 'late and the responsible government officials should act at once to relieve the homeowner of the oppressive property tax load. Some immediate legislative action is indicated ' by the fact that dissatisfaction and rebellion are obviously uppermost in the minds of the taxpayers." ' Committee members Forrest Simoni, chairman, and Leo Armstrong and Richard Kerbavaz recommended: ' 1. Remedying a "tax loss" now suffered by the county by making the State Board of Equalization establish the market value of utility properties "in a manner more uniform with the -156- b formula used y the County Assessors." "The State Board of Equalization uses one formula to ' assess utilities and County Assessors employ another to arrive at market value of locally assessed property. The use of two methods , of evaluation adds to the confusion and leads to inequities between Board assessed and .locally assessed properties." ' The report states that the Board of= Equalization has , been. gradually lowering the utility assessment ratio from 50% in 1965 to 29% for the 1971-72 year. "The reduction— is having a , significant effect on the county property tax base. The shift in the tax load from State Board of Equalization assessed properties 1 to locally assessed properties appears to be quite substantial, and seems to have fallen most heavily on the homeowners." "Although utilities have received a huge tax "windfall" it has not reflected in lowered utility rates for the consumer. " 2 . Educating the voter to understand more clearly the ' constitutional amendments which often expand the "preferential property tax treatments of special interests . . ..and result in a shift of the tax load from special interests to the homeowners. " 3 . Changing the county lien date from March 1 to January 1 and using the average inventory value for taxing , purposes. December 20, 1971 ' -157- IN THE BOARD OF SUPERVISORS OF CONTRA COSTA COUNTY, STATE OF CALIFORNIA March 21, 1972 In the Matter of Memorandum ) Report of the -County ) Administrator on Report of. ) Taxes and Assessment Committee ) of the 1971 Contra Costa County ) Grand Jury. ) The County Administrator having submitted to the Board a memorandum report dated March 17, 1972 containing his comments on a report of the- Taxes and Assessment Committee of the 1971 Contra Costa County Grand Jury; and The County Administrator having recommended that afore- said memorandum report be approved and that a copy thereof be placed on file. with the County Clerk; and The County Administrator having further recommended that the following action be taken by the Board of Supervisors: 1. Direct the 'County Counsel to prepare in draft form a bill for introduction in the 1972 Session of the California State Legislature (either by the introduction of a new bill or by amendment of a bill already introduced) providing for a change in' the lien date from March 1 to January 1; 2. Approve preparation by the Office of the County Administrator of a "Tax Fact Mailing Insert" to be transmitted along with tax bills for the fiscal year 1972-1973 with the insert to include information such as that. contained.; in the report of the Taxes and Assessment `Committee of the 1971 Grand Jury; NOW, THEREFORE, on motion of Supervisor A. M. Dias, seconded by Supervisor J. P. Kenny, IT IS BY THE 'BOARD ORDERED that the recommendations of the County Administrator are APPROVED. The foregoing order was passed' by the, following vote of the Board: ; AYES: Supervisors J. P. Kenny, . A. M. Dias, J. 1E. Moriarty, W.,' N. Boggess; E. 'A. Linscheid. NOES: None. ABSENT: None. CERTIFIED COPY I bertify that this is a full, true & correct copy or the original document which is on file ir;. n;v office: cc : County Clerk and that it was passed & adopted by the Board o? Superior Court Administrator— Supervisors of Contra Costa County, California, on Jury Commissio1 .ner (3) th6 date shown. ATTEST: W. T. Fy C,11--- Jury county County Assessor clerk&ex-officio clerk of said Board of Supervisors, County Counsel by deputy clerk. County Administrator on 17�. OFFICE CONTRA COS ADMINISTRATOR RECEIVED . Administration Building Martinery California Py7-2, W. T. PAASCH CLER BOAP R;, F SUPER A COSTA COv�f�/� 13 y ty To: Board of Supervisors Date: ,March 179 1972 From: J. P. McBrie&": �' �°--'°�" Subject: Report of Tams and County Adminis ator Assessment Committee of 1971 Contra Costa County Grand Jury The report of the Taxes and Assessment Committee is a forceful and well documented presentation of the facts related to the present extremely onerous property tax climate. The j) committee points out that under current circumstances an undue burden is placed upon the small businessman and upon the homeowner (particularly the retired,, aged, and poor),, that no action has been taken at the state level to relieve the situations, that preferential treatment has been given to certain categories of taxpayers, that the declining assessment ratio being applied to 'utility properties by the State Board of Ellualization has a very adverse effect upon the taxpaying status of other categories of property owners,, and that Immediate state legislative action is needed to diminish the oppressive property tax requirements. The committee after a review of the recommendations of the 1970 Grand Jury on the Office of the County Assessor indicates that progress in implementing them has been made and points out the further steps which it deems desirable® The committee recommends that the property assessment lien date be fixed as of January 1 (rather than March 1)a that an average inventory value be used for property taxing ppurposesi, that , action be taken through legislative measures and by informing the general public to avoid and e13.minate preferential tax treatment,, that the method of establishing the market value of utilities be made more uniform with the formula used by County •Assessors9 and that further lowering of the ratio used In assessing utility properties be discontinued until such uniformity is achieved. There is transmitted herewith a copy of a February 299 1972 letter of the County Assessor in which he comments on the report of the Taxes and Assessment Committee of the 1971 Contra Costa County Grand Jury; you will note that the County Assessor is in general agreement with the findings and recommendations of the committee, Board of Supervisors 2. March 179 1972 The report of the Taxes and Assessment Committee of the 1971 Contra Costa County Grand Jury is a forceful statement on the onerous property tax situation; in this connection it may be noted that copies of the 1971 Grand Jury Report have been transmitted to the Contra Costa -County representatives. in the California State Legislature and that a copy of the report of the Taxes and Assess- ment Committee has been transmitted to Mr. William M. Bennett who Is the elected member of the California -State Board of Equalization from Equalization District Number 3 which includes Contra Costa County. It is my recommendation that the following action be taken by the Board of Supervisorss 1. Direct the County Counsel to prepare in draft fora a bill for introduction in the 1972 Session of the California State Legislature (either by the intro- duction of a neer bill oramendment of a bill already introduced) providing for a change in the lien date from March 1 to January, 1. 2e Approve. preparation by the Office of the County Administrator of a "Tax Fact Mailing Insert" to be transmitted along with talc bills for the fiscal year 1972-1973 with the insert to include information such as that contained in the report of .the Takes and Assessment Committee of the 1971 Grand Jury- It .is' also recommended that this memorandum report be approved by the Board of Supervisors and that a copy of it be placed on file in the Office of the County Clerk. 17B a bgg enol. ;_?F. WANAKA RICHMOND OFFICC. COUlml/' .13'CSSnH OFFICE OF THE ASSESSOR 2S. 24TH STAELT 9400a PHONE 2]3.7050 R. V. SCAT ON 820-a5n1 ASSISTANT SOW PHONR 213.3000 CONTRA O T H / fIHCOUNTY FINANCE BUILDING MARTINEZ, CALIFORNIA 94853 February 29, 1972 �f�,4fcEi�F "'l co� j Acl�,nigt�`�unty . Honorable Board of Supervisorrs ( rQ Administration Building Martinez, California 94553 Attention J. P. McBrien, County Administrator Gentlemen: The 1971 Grand Jury directed its efforts toward certain aspects of the property tax structure of California rather than to the opera- tion of the Assessor' s Office. I concurwith them, and believe the recommendations to be timely since significant change in the property tax law seems probable in the next few years. CHANGE IN LIEN DATE AND USE OF AVERAGE INVENTORY FOR PROPERTY TAX PURPOSES Change in the lien date to January 1 would result in a more viable financial cycle. The assessment roll completion date could be advanced allowing more time to complete the budgeting process and more time for the assessor to complete the roll. It would provide easier tax reporting procedure for the taxpayer since many corporate records are Irl=conciled as of December 31 for other tax purposes. An average inventory value would be more equitable since it would provide equal tax treatment to all types of business regard- less of when peak inventory occurs. It would alleviate interruption of the normal business cyclee since there would be no incentive to wait until after March 1 to order goods. Both thdA State Association of; County Assessors and County Supervisors kssociation have supported this type of legislation a number of times in the past years. I urge this type of legislation be introduc¢d again this year , and that it receive the support local goverslmental agencies. i Honorable Board of Supervisors m2- February 29, 1972 PREFERFINTIAL. TAX TREATMENT When a particular type of property is granted preferential tax treatment, the loss in taxes from this preferential treatment must be absorbed by the remaining taxpayers. Last year, bills were introduced in the legislate;q e'hioh would require any legislation affecting local government to include an estimate of the cost of that legislation to local government. This is already mandatory with respect to State government. The so-called "price tag legis- lation" did, not receive enough support to pass both houses* If the legislators (when voting on issues whish would p.ormit preferential talc treatment) could see the cost before them, it might deter such of the action that has taken place in . the past. ESTABLISHING MARKET VALUE OF UTILITY PROPERTIES Although I heartily concur with the recommendations of the Grand .bury that "the State Board of Equalization establish the market value of utility properties 'in a manner more uniform with the for- mula used by the County- Assessors+", it may be the time to approach this problem from a different direction. The assessment of utilities has been investigated on several occasions in recent years bona by the Legislature and by the County Supervisors Association, but no conclusive recommendations for changes have been forthcoming. Within the next two years, the Legislature will probably undertake steps toward significant property tax reform, and it would be appro- priate to consider another Wethod of measuring the tax liability of utilities to local government. Oages 120 through 125 of the Grand Jury Report give the results of .certain investigations of utility assessments conducted by this office during 1463. Following up on that, pages 126 through 132 give a report by the State Board of Equalization -showing the pro- cedure involved in the assessment of utilities. It can be seen from these two reports that there are considerable variances in the methods of approaching value® Very truly yours, E. F. WANAKA County Assessor CONTRA COSTA COUNTY DISASTER OFFICE 50 GLACIER DRIVE MARTINEZ, CALIFORNIA 94553 March 14 , 1972 TO: J. P. McBrien unty Adm' istrator FROM: Will H. Perr , .Jr.. D' ector SUBJECT: Report of Law Enforcement Committee of 1971 Contra Costa County Grand Jury Reference your Memorandum of March 10 , 1972 , Subject as above. This Office concurs in general with the findings of the Grand Jury as ,they pertain to the present operations of the Contra Costa County Disaster Office. It should be noted, however, that there is one slight typographical error in the first paragraph of the Report. The Disaster Office is authorized only 10 personnel , not 20 as indicated. The Grand Jury recommends that the Disaster Office .be assigned the additional functions of radio dispatching for agencies other . than law enforcement, and the technical communications ' function presently under the jurisdiction of the Sheriff. In° that these recommendations are for a significant change in the structure of, and services provided by, the Disaster Office , they should be sub- ject to study and analysis by the County Administrator's Office. This Office would be pleased to participate in such a study. We suggest that the recommendation pertaining to a publicly operated ambulance service be referred `to the Board of Commissioners of the Contra Costa County Fire District (Consolidated) for comment. This Board has recently completed a comprehensive study of the feasibility of providing such service. The Grand Jury' s recommendation pertaining to the County Hospital' s transportation of outpatients does not relate to the functions of the Disaster Office. We suggest that this recommenda- tion be referred to the County Medical Director for comment. WHP: sf CONTRA COSTA COUNTY DISASTER OFFICE 50 GLACIER DRIVE MARTINEZ, CALIFORNIA 94553 March 14, 1972 TO: J. P. McBrien, County Admini rator FROM: 11 H. Perry, r. , D ec or SUBJECT: Report of Law Enforcement Committee of 1971 Contra Costa County Cerand Turn Reference your memorandum of March 10, 1972, subject as above. The first sentence on the Disaster Office function recommends that the Office "remain as a separate District of the County". The Contra Costa County Disaster Office was established as a Division of the County Adminis- trator's Office in 1959. Prior to that time, it was a separate department for three years. Earlier, the function was delegated as an additional responsibility of the Sheriff. The Office has never had the status of a District, nor do we think that the function is legally capable of operating in district form. We believe that the Office is properly placed and should continue as a division of the County Administrator's Office. The third sentence recommends a change of name for the Office. This is presently under consideration in the County Administrator's Office and we concur with the recommendation. Mention is then made to cost savings to the taxpayer and later a. cost of one mill of the tax rate is assigned to the Office. We concur in the statement pertaining to cost savings. We cannot, however, assign a tax rate to our function as we show a profit in some-fiscal years. Fiscal Year 1971 is a good example. Total expenses of the Office were $153,330..91; received in Federal Subvention was $113,916.48 and an additional $42,004.57 of Federal Property was received. Receipts over expenditures were $2,590.14. In Fiscal Years 1954 through 1971, total cost of the Disaster Office's function is $1,745,729.11. During this same period, $3,061,909.27 was received in money, goods, and services. Receipts exceeded expenditures by $1,316,180.16, indica- ting that approximately $1.75 was received for every $1.00 spent. The Report states, "This Department still operates with the same staff in 1971 as it did in 1958 -- 20 personnel." This statement is incorrect. The authorized manpower of the Office in November 1958 was nine full-time employees and .one part-time, averaging ten months a year. In 1961 this figure was increased to ten full-time employees with no part-time employees author- ized. Although requests for additional employees have been submitted every year for the past six years, no increases have been authorized and the person- nel strength of the Office today remains_ at ten persons. M1 • • J. P. McBrien -2- March 14, 1972 The Report next refers to overtime worked by the personnel in the past ten years and assigns a value to this time. These figures are incorrect. The Office's professional level personnel are not authorized overtime. Each month, in the Monthly Activities Report submitted to the County Administrator's Office, figures are given for the number of man days of noncompensable overtime donated by the professional staff.. A recapitulation of these reports for the past ten years and conversion into hours, indicates 7,221 hours have been donated. Assessment of a monetary value for this donated time is impossible. The Report states, "Communications equipment must be replaced as it was obsolete four to five years ago." The communications equipment utilized by the Disaster Office is, for the most part, owned and maintained by the _Communi- cations Division of the Sheriff's Office. Communications equipment, depending on type, becomes obsolete or uneconomically repairable in six to ten years. Although much of the equipment is of recent acquisition, some is as much as 13 years old. A recent inspection by the Federal Communications Commission indi- cates that some of the critical standby transmitters are no longer "Type Acceptable" and cannot legally be used. The Communications Division and the Disaster Office have attempted to replace this overaged equipment by requesting funds in their annual budget submissions. Some of these requests have not been satisfied. The Report makes reference to the need for an adequate emergency operating facility. For ten years, this Office has annually submitted a budget request for funds to build an Emergency Operations Center. One-half of the cost of this facility would be borne by the Federal Government. No funds for this purpose have been appropriated by the Board of Supervisors. After each Disaster Exer- cise, the single paramount deficiency noted by the County department heads has been the lack of space for personnel to assist them in the conduct of their emergency responsibilities. During the most recent exercise, utilizing every bit of space available in the Communications and Disaster Office Building including the garage, only some 100 persons could be accommodated. Estimates are that nearly three times that number of people are required to direct and control the emergency functions. We, therefore, concur in this Grand Jury recommendation. The paragraph of the Report pertaining to the Federally provided 200-bed hospitals is correct. Each year, for seven years, the Disaster Office has 'submitted a request for a warehouse to accommodate additional packaged hospitals and other emergency supplies. We are not certain as to the intent of the recommendation, "that the County Communications System be split". Prior to the construction of the County Administration Building, law enforcement dispatching functions were con- ducted by the ,Sheriff's Department in the Sheriff's Office while all other dispatching was conducted by the Sheriff's Department from the Communications and Disaster Office Building. This recommendation would appear to be a return to the former system. The prime benefit that would be derived, and we suspect that the reason for this recommendation, -is that the Disaster Office telephones would be answered on a 24-hour per day basis rather than the 40 hours a week J. P. McBrien -3- 'March 14, 1972 that the Office is open. The Disaster Office does its own radio dispatching during normal working hours, with Sheriff's Dispatchers Handling the radio traffic during nonworking hours. Since this system has been in operation, only minor problems have been experienced. We have heard complaints from representatives of other agencies that their radio traffic with Sheriff's Com- munications was not handled in a satisfactory manner. This Office has made no inquiry into these allegations but has, on occasion, informally mentioned them to the Sheriff's Lieutenant in charge of communications. This Office does not wish to concur in or reject this Grand Jury recommendation without further study. Only cursory consideration indicates that sufficient equipment to take over the dispatching function for other than law enforcement is presently installed in the Disaster Office Radio Room. An undetermined number 'of dis- patcher personnel would have to be employed and trained. Some modifications to the telephone system would be necessary. This Office is willing to undertake a study to determine the feasibility of this recommendation and to assume this function should the Board of Supervisors so direct. The Law Enforcement Committee further recommends, "that the Communications Technician be removed from the Sheriff's Office and put under the jurisdiction of the Disaster Office." We do not understand the rationale for this recom- mendation. The current staffing of the Sheriff's Communications Division is one Communications Engineer, one Supervising Communications Technician, six Communications Technicians, one Trainee Communications Technician, one Communi- cations Equipment Aide, and one Intermediate Steno Clerk. We see no reason to assign any one of these personnel for the exclusive use of the Disaster Office. . The technical service provided under the current structure is adequate to our needs. There has been some discussion in past years regarding the transfer of the Sheriff's Communications Division to a Department of General Services. This Department has never been implemented. Some more recent mention has been made to transferring the function to the Building Maintenance Division of the Department of Public Works. This Office has not been a party to discussions on either of these two proposals. In relation to the Disaster Office assuming the technical communications function, let it be reemphasized that this Office willingly assumes any responsibility delegated to it by the Board of Supervisors. It is recommended, "that a long-range Communications Plan be developed and implemented as soon as possible." This Office concurs in this recommen- dation on the basis that we are always in favor of any form of long-range governmental planning. The Grand Jury Report states, "A severe earthquake could wipe out the present system" referring to the Communications System. With the designed sys- tem redundancy, this is highly doubtful. Some disruption may occur and there may be diminished capability, but essential systems will either remain opera- tional or can be returned to operation in a relatively short period of time. The Grand Jury makes a very strong recommendation on a publicly operated ambulance service. This appears to be a continuation of the recommendations made by the 1970 Grand Jury on this same subject. This Office cannot comment J. P. McBrien -4- March 14, 1972 on the recommendation as we have not studied the feasibility of a publicly operated ambulance service. The Contra Costa County Fire District (Consolidated) Board of Commissioners has made such a study. We believe that the Grand Jury Committee inadvertently referred the Board of Supervisors to the Disaster Office rather than to the Fire District Board as a source for "details and statistics". This Office, at the direction of the County Administrator, did develop some statistics to support the County's request to the Department of Transportation for Federal funding of a hospital and ambulance radio communications network. This information was provided to the County Administrator's Office, and was submitted pursuant to a Board Order to the Highway Safety Division of the State of California. This Office, again at the direction of the County Administrator, will meet shortly with Federal and State representatives to work out the details of the proposal. There is no relationship between the project we are working on and the studies conducted by the Fire District relating to a publicly operated ambulance service. This Office will make no comment on the paragraph pertaining to the County Hospital's transportation of outpatients since this does not relate to the functions of the Disaster Office. We suggest that this be referred to the County Medical Director for comment. The final recommendation is that the County Disaster Office be studied by the 1972 Grand .Jury. We concur in this recommendation, provided the Grand Jury Committee assigned this responsibility spends sufficient time with the person- nel of this Office to gather factual information and to develop valid recommendations. WHP:sf In-' the .Board` of� Supervi=sors = of Contra Costa'., County; State: of :California :.. March- 14 19 72 In the Matter.of. : Preliminary Summary .R.eport of County Administrator on:..1971 . Contra Costa -County "Grand Jury Report. The County .Administrator having transmitted 'to this Board' a preliminary surrmary. .report on the 19.71 Contra Costa County- Grand ° .Jury Repo.rt.9 anc The.County Administrator-having .recommended that: said .' summary 'report be ackriowled,ged ' by the Boar d and that: a copy of ' same be placed on' file, with- the County; Clerk, with . the. understanding that detailed- comments ill be . submitte'd later by- county agencies and- the Office _of. the County Administrator. on each of the committee reports of the- 1971 Contra Costa County Grand Jury; NOW, THEREFORE, . on motion of Supervisor- A. M. Dias, seconded by Supervisor J. P. Kenny, IT IS BY THE BOARD ORDERED that- the- recommendation hat- the- recommendation of.,the - County. Administrator is- APPROVED. The foregoing order was -passed by the. following vote of the Boarde AYES; :Supervisors J. P.: -Kenny, A. M. Dias, J.- E. Moriarty, W* •N. Boggess, E. A.. Linscheid. NOES: . . .None,. ABSENT: None. I- hereby certify that the. foregoing is a true and correct copy of an order entered on the ininutes of said Board,'of Supervisors 'on'-the date aforesaid. cce Gourity -ClerkWitne'ss :my-hand and the Seal of'the Board of Superior_ Court- Adminis- Supervisors trator-Jury affixed this 1 th. day of March ; 19 .72 Commis sioner '(3 W. T. PAASCH, Clerk County Administrator By Deputy Clerk Nancy In wham r OFFICE OF THE COUNTY ADMINISTRATOR RECEIVED COMM COSTA COUNTY Mb"is.tration Building ���R 1 Martinez, California W. T. PAASCH CLERK BOARD OF SUPERVISOR$ CONTRA C A OO, EY To: Board of Supervisors Date: March 6, From: J. P. McBrieiiSubject: Report of 1971 Contra County Adminisqator► Costa County Grand Jury The 1971 Contra Costa County Grand Jury Report is a- 164 -Me document which was released in January, 1972 a copy of the report was received by my office on January 12, 1971. The scope of the re rt is indicated by the Table of Contents.,. a copy of which is attached hereto. Each county agency to which the Grand Jury ve attention has been contacted by mfr office by memorandum requested to comment on the pertinent nap�rt(s) of the report;. a sample copy of one of my memoranda (to tbi Office of the County Sheriff) is transmitted herewith. T t.a9.11 forward to the Board of Supervisors the cc�mment� of each of the county apacies after its review of the report along' with my ora comments for consideration by the Board of Supervisor8 (after. refeurals to Board Committees, if necessary). .y preliminary s comments can the 1971 Grand Jury` report are set forth in the following Wired paragraphs.: ' 10Introduction to committee Reports. The 1971 r ury comp Prior rand Jury re dations have been 19aored. There is aro deliberate intention to disregard Grand Jury proposals- in fact, Grand Jury recon-. aae�ations .often reflect proposals of county officials that. they would like to .implement. The deterrent to ming Grand Jury ki -- mendations effective is often a matter of finanting fox . which solutions are rarelysuggested. It may . be noted, however, that te Tames and Assess- ments Coimittee of ..the 1971 Grand Jury did, present a forceful 4tatem►ent on the onerous property tax situation. Copies of the 1971 Grand Jury report have been transmitted to the Contra Costa County representatives in the California State Legislature. Board of Supervisors 2. Murch 6, 1972 2. Audit and Finance Committee Report. The re or EEZ WIE an Finance Msaittee relates primarily to accounting procedures on which comments will be made by the County Auditor-Controller. It should be .noted that a new system related to cash receipts of the Office of the County Tax Collector is being designed and that it is expected that the system will be operational for ]December, 1972 tax collections; the 1971 and some prior Grand Juries have commented on this matter from the viewpoint of maximizing interest ea=ings. 3. Civil Service Committee. The report of the MSeWlee CBRUEEee deals with the work of the Civil Service Task Force (and in particular with the recommendations of the Task Force on marsagemt prerogatives as set forth in the County loyer-Employee Relations Ordinance, and on the composition of the Civil Service Commission) and the position of County Hearing Officer. The Committee urges that the recommendations of the Task Force on changes in the Countyy Employer.-Employee Relations Ordinance be disapproved, that there ions of the Task Force on the composition of the Civil Service Commission be disapproved, and indicates that there is no need for a County Hearing Officer. It may be noted that the 1972 Government Operations Committee is now reviewing the County Employer-Employee Relations Ordinance at the behest of county employee groups, that the county civil service ordinance (adopted in 1944) has not been substantially changed to fit che ing times and circumstances, and that tty Hearing Officer is also available, at the discretion of the Board of Supervisors, to hear matters other than referrals from the Civil Service Commission. Hoard of Supervisors 3. March 6.0, 1972 4. Hospital, Clinics and Social Welfare. The report or the Fiospluus, csan Social Welfare Committee points to the vubstantial expenditures being made for social programs. (welfare and hospital progrcams), indicates that public assistance and medical care are provided underccom�pplex arrangements which precluded. a comprehensive committee evaluation, and states that the committee did not receive factual answers to many of its inquiries from the county agencies involved. The committee also points out that welfare programs are sub ect to public.criticism and somet of the crLticism was justified, that welfare administrative coats appear to be high, that fiscal controls of welfare costs` were improved as indicated by the fact .that 1970-1971 expenditures Vera Dept well within budget allocations, that the public should be aware that the county social service organization was deeply concerned about any fraudulent claims for public assistance, and that some workers in some of the offices of the Social Service Department gave tho impression that a full days work for a full days pay was not being given. In connection with hospitals and clinics the committee advises that it was convinced that efficient use of hospital facilities (public and private) would result in a general improvement in service without increased expenditures'. The committee offers critical comments about hospital operations in the Concord Hospital District$ the Pittsburg Hospital District, and the West Contra Costa Hospital District over which the Hoard of Supervisors has no Jurisdiction- in this connection the committee criticizes the proposed joint powers non-profit corporation agreement between the Concord Hospital District and the County of Contra Costa for expansion of district hospital facilities, and states that the expansion should be financed with revenues from the sale of bonds which means of financing the committee asserts would be supported try district residents if expansion were demonstrated to be necessary. hoard of Supervisors 4. Parch 6. 1972 With respect to the County Hospital the committee points to its role in. term of servicei for mentally 11 and the mentally retarded and drug addicts, states that the physical facilities of the hospital are poor with particular reference to tha laboratory, asserts that there appears to be- little cooperation between the County Hospital and district hospitals Ani private hospitals, and mitnti ons cc�troversia3. budget over-runs of the. County Hospital. In its wry and :general 4. ions the committee reasserts that there is a lack of cooperation between district hospitals end the County Hospital :and private hospitalaa states that the Comaprehensiv* Health Pring Association of Contra Costa County should assume a stronger role in the coordination of health facilities. within the county. recomic ends that the County Hospital. and County Health Department and Office of the County Coroner should be merged, states that new laws must be introduced to prevent district hospital . professionals from using tax -supported facilitiesfor rofit, mud urges that the 1977 Grand conga to Investigate health services within the c xmty. The report of the hospital., Clinics and Social Welfare Committee has been referred to the County Welfare Director for detailed review and his report will be submitted to the Board of Supervisors as soon as it is avail- able. As noted by the committee the overall social progr;n area (public assistance and medical care) is involved and licated; in-depth reviews require an ext d� ed length of time and concerted efforts. It may be noted that organizational consolidations were effected in the social program area prior to issuenae of the report of the 1971 Grand Jury. Board of Supervisors 5. March 6,. 1972 5. Judicial Committee. In its report the c ee refers to its recommenda- tion opposing legislative authorization of an additional Superior Court Judge,, reviews: and makes suggestions fay comectiom with its discussionwith the presiding judge of the Superior Court, recommends that ru9.es on . civil trial juries adopted by the California Judicial Council be extended to criminal cases, urges that the judge assigned to the juvenile court continue to serve in that role or several years to obtain maximus benefit. from his experience in that capacity, states that it is desirable that th6 Superior Cowart concern itself more directly with the operation of the Probation Depsrtmeut, rem sends further lower court consolidations and the establishment of a single countywide m miciLpal court with one top Municipal Court Marshal assisted by Deputy Marshals, criticizes severely the current accommodations for the Walnut Creek Municipal Court and urges prompt action on replacement facilities, recoamunds the use of a special referee or commissioner in lieu of a mmicipal court : judge in hearing small claim and traffic matters, urges le islative action so as to permit the redut on of jurors from 12 to 6 iia misdemeanor cases, re6ommends the mmuober ' of jurors required to acquit or convict in . felony cases changed rrm a umanfmous vote to a vote of .10 to 2, and concludes its report by asserting that there is a need for, revamping and modernizing of the entire court systema.. It may be noted that the Legislature and the. Governor did, in fact,. approve anotherjudge- ship, for the Sul for Court, that the hoard. of Supervisors Yeas proceeded in the direction of establishing the minimum number of lower courts in the county (the original number of 17 lower courts has now been reduced to five), that there is still a problem with respect to financing of new facilities for the Walnut Creek Muxaicipal Court., and that the committee suggestions with respect to Superior Court procedures might be more appropriately made by the Superior Court Judges than by the Board of Supervisors. Board of Supervisors 6. March 69 1972 6. Law Enforcement Co mm3ttee. The Law Enforce- men ee s e its comments and recommendations in two parts, one being its main report covering -city and county police service, junior college police apprentice programa, County Disaster Office operations, and county ambulance service and i6 second being a suplementary document on county jail operations jail and rehabilitation center). In reviewing police service the committee considered police officer training, prisoner . pick-up by the Office of the County Sheriff, the use of portable tape recorders in patrol cars, the matter of control of flea markets., the use of helicopter service, the potential of the use of city jails for incarcerating drunk drivers, and the desirability of public officials riding with beat patrolmen to become directly familiar with police services. In terms of.coti�nty law enforcement the committee comments on the need for new jail . facilities as well as the objective of reducing jail population through rebabilita-. tion programs, criticizes the rehabilitation center operation because some work at the facility is performed ,by paid workers which it believes can be done by inmates, considers additional security to be needed 'at the County Hospital when prisoners are receiving medical care, recommends a classification of Jailer be established rather than use Deputy Sheriffs in that .role, urges better procedures. for obtaining approval of search warrants from judges, recommends more rigid control of private police protection agencies including the requirement that personnel of such agencies have uniforms of a different type than police officers, proposes countywide registrationof bicycles to deter thefts, suggests that the Probation Department obtain all available data from police reports for the files of felons,. recommends that the Board of Supervisors 7. lurch 6, 1972 Office of the County, Sheriff assign three patrol sergeant supervisors to each shift, comments on the impression that some judges are too lenient in setting bail and imposing penalties, proposes that additional police services be provided in the unincorporated E1 Pueblo and West Pittsburg and North Richmond areas, and recommends more intensive police training in the use of firearms. The c*m mittee comments on the police services of eleven of the fourteen cities in the county (Cities of Clayton, Hercules and ette are excluded) and of the Kensington rnGty Services District and makes. specific recom- mendations in most cases. In the case of the Contra Costa Junior College District, the committee recommends improvements in the police apprentice program at Diablo Valley- College and the introduction of such a program at the Contra. Costa College. In the case of. the County Disaster Office, the committee recommends that the office remain as a separate agency (as at present rather than be combined with the Public Works Department as has been proposed), compliments the office on the service which it renders to the public, points to the space needs of the agency, particularly when county personnel must be mobilized at a central int during disaster situations, indicates t agency has additional equipment and supply storage needs, recommends that the county communication system be split with the Office of the County Sheriff to retain control over the law enforcement system and so that the Disaster Office will be responsible for operation of the remainder of the system (such as for public works, animal control, fire, and ambulance functions) on an around the clock basis, and proposes that the county communications engineer be transferred to the jurisdiction of the Disaster Office. zz., e .of stwer wars Marta 61 1972 The committee recomtends strongly that a publicly owned ambulance service be developed to provide countywide emergency service:, suggeststhat the U. Sol Department .of Trans- portation fir, ®portation he contacted with respect to federal grants for equipment for the proposed ambulanct servicev. and proposes that tae. hospith.ls iia the minty develop an improved system for transporting outpatients and avoid tying up ambulance-s required for emergency purposes. In its supplementary report the committee criticize security provisions at the rehabilitation center inclusive of supervision. of prisoner work Crew,, expresses cora: paver security arrangements in the county jail in 1 rtinezq. points to a weed to segregate prisoners contingent upon the seriousness of flair offenses', and urges that the Office .of the County Sheriff utilize the services of the west available persovael for duty as jailers, The County Sheriff hass already submitted to my office a report conta comments. on the recommandatims, and proposals of the i Enforcement Committee of the 1971 Contra Costa County Grand ,Teeny and this report will be transmitted to. you shortly along with ae3r own comments* It may be noted that someVf the estions of the Law Enforcement Committee have` leen implemented and detailed attention is being given to others. 70. Plannin and Public Works Committee. The report"or the F lng and POIre carlrs Comm ltee deals with some of the function of the Public Works Department with particular emphasis upon airport operations, the work of the Plaziniiig Department primarily in tem of public relations and qualifications of personnel,, and the responsibilities of the Contra Costa County Flood Control and Water . Conservation District with consideration given to. desirable changes in legislation. Board of Supervisors 9. March 6, 1972 In the case of the Public Works Department the committee points to the need for expediting the TOPICS (Traffic Operations Program to Improve Capacity and Safety) program which has been subject to delays as a result of compli- cated regulations pertaining thereto, points: to the inadequacy of the present central Public Works corporation yard for which a replacement site has been purchased, commends the emphasis upon ecological and aesthetic facets of Public Works programs inclusive of planning for .roadside pathways for use as bicycle paths and horse trails, and suggests the need for improvement in the handling of receipt books and cash receipts. The committee, after reviewing county airport operations, .recommended that the airport master plan be updated and advises that nothing has been done since 1950, that the airport be cp erated on a 24 hour basis, that depreciation on airport property donated by the federal government be excluded from air- ppoort financial reports, that bids be solicited for airport fuel and services (with hours of operation specified) and a contract being awarded to a single firm,. and that the air® . port be placed under the management of a aCcial airport commission. With regard to the last recommendation, the committee in its review points to poor airport organizational arrangements and differences of opinion between personalities and also suggests the need for night security at the airport. With respect to the Planning Department the . committee asserts that this agency has a poor image in term sof public relations, that a system for evaluating employees on a regular basis should be introduced and that stronger and more capable ma gemeit is required. In the case of the Contra Costa County Flood Control and Water Conservation District the committee is complimentary about the work accomplished by the district and about its success in obtaining federal grants, indicates that consolidation of the district with the Board ®f Supervisors 10. March 6, 1972 Public; Works Department would be advs►nte$eous but that the merger should be preceded W the consolidation of the flood control district with 'the Contra Costa County Storm Drainage District and by a comber of changes in -legis- applation for lication to the combined flood' . control and drainage agency. The Public' Works Director hes already submitted con an to mean the part of the Planning and Public Worlds Committee report which pertains to his agency and I expect -to receive similar cots shortly from the Plaming Department, the Contra Costa County Flood Control and Water Conservation District and the County Disaster Office. The cats mentioned will tae 'transmitted to you along with my reviewrof the committee report. It is worthy of note that the airport master pax mentioned by the committee was updated and,. adopted in November, 1970 after a series of . public hearings—and the legislation mentioned. by the committee .in Connecton with its review of the work of the Contra Costa County Flood Control and 'dater Conservation District has been submitted for introduction in the 1972 session of the California State Legislature.. 8. Probation Committee. In its report, the on asserts that tha objective of a is rehabilitation and that Irobationsystem ts rt is presented from that port of view. The committee points out that the probation system involves many ageir..Les and eres their concern and cooperation to be effective. The committee gave attention to .probation facilities including grroup his., the Byron Boys Rauch,. the Juven le, ball, and the Girls Treatment Center (located at Juvenile Hall). In the coaasee of the Las Trampas Youth Village alae hofour mes s beho�s� � committee suggests emote location and high cost of operation and that In the meantime the boys placed there be given grounds attaintenasce and garden duty . Board of Supervisors i.l. Farah 6. 1972 assignments.; in the case of the Walnut Creek group borne, the committee also suggests ggrroounds meintam�s�aa ee tty assign is for the ys and is on parking 'a county car at tha. home. In a general sense the committee questions whether the objective of providing a homelike atmosphere through the use of .group homes is being achieved. in the case of the Byron Boys Raf h,. the committee comments on its remote eastern county location, states that it should be kept operating at full. capacity to relieve overcrowding at Juvenile and indicates that a comparalble facility is weeded in the western area of the county. In the case of the Juvenile Hall the committee is extremely critical of overcroWd ing and the practiceof placing more than one child in a room intexaded for one, and asserts that the heatin& and ventilation in the building are poor. The committee is compli- mentary about the facilities provided for than Girls 'Treatment Center (luted within the Juvenile Hall) but is -vairy criticalof the use of such facilities to relieve overcrowding in the Juvenile Hall section for the detention of delinquent girls. The committee points out a weed to segregate children who are committed for the first time from children 01w have already been adjudged delitnquent, and empbasimes. the mad to reduce the length of detention periods. In reporting generally on the Probation De} rtauent, the committee stages that the dapartment seems to be well organized and has capable staff. The committee asserts that the hours of .probation officers should be made flexible, that the is ,not telt' staffed to fulfill its Purposes, that tion investimations and supervision require inten- sive and time consuming work, that the 1971-x1972 personnel requests of the Probation Department were cut back substantially by the County Administrator and the board of Supervisors, and that in the opinion of the committee all persounel requested by the Probation Department Ls urgentlyneeded. The committee also points out that tCounty Probation Officer is Board of Supervisors 12. March 6, 1972 responsible to the Superior Court for the attainment of results, but that the apgropria- tions for his department are amide by the mrd of Supervisors and that consequently the efforts of the department and the court may be nullified unless the mrd of Supervisors acts wisely on budget requests in this connection the committee states that parsimony where thi� probation activity is concerned is :clearly falseeccmc omy. The c mmi.ttee made contacts with various groups and persons having a direct interest in the probation activitieag these included the Juvenile Justice Cosmaission and. Delinquency Prevention Commissions, the Foster Parents Association,, the Contra Costo. County Employees Association (Local 1), and a representative group of deputy probation officers. The comaittee found itself inagreement with the work ,and aims of the Juvenile Justice Commission and Delinquency Prevention Commission; finds the foster home arrangement to be a very desirable rehabilitation program, states that . the services of foster homes are not beim used to the fall -extentpossible and urges more intensive use and also the licensing of additional foster homes,, indicates that the payments made to foster homes for child care are relatively low and suggests that a study be made to remedy this situation, and mentions that responsibility for the care of ependent children was transferred from the Probation Department to the Social Service Department and states that become of the divided respon- sibility for the care of children, close departmexatal. cooperation is required; compl.i4 ments the representatives of the Contra Costa County Employees Association (Local 1) for their viewpoints on probation and their contribution to the Grand Jury in the form of _ a 40 page report; and expresses concurrence with the vi int, of representatives probation of deers who it states wish to make desirable changes in the probation system. Board of Supervisors 13. March 6, 1972 In its conclusions the committee indicates that the Probation Department and .relat€d agencies are successful to a degree,. but that in the opinion of the tommi:ttee it 1s a small degree in terms of what needs to big done; .that the county is spendinga. large amount of money, fog the Probation T% partmant and that the . :committee reco , aexzdations vould increase that amount alightly; that it is concerned that the county intends to make greater outlays of capital farads sand operating expenses; and that too. much emphasis is placed on detention in Contra Costa County while other .counties in California and across the nation are utilizing more modern sna+d productive tecbniques- and techniques- andproggrram. The committee criticims the nonprofit corporation arrant utilized by the county toJuvenile ball facilities after re ection by the voters of bond issues for tUat purpose, - finds it to .be a disappointment that the Probation Departamt is in aggeat ,raith such mesion, :fates that the exists Juv' ile HaIl is sufficiently large to house children who =at be detained, that many alternate ideas have been presented to diminish detention requirements, concludes that county official s are out of touch with recent progress In the probation field, and suggests that unless there is a tchh�nge of direction the present county officials should be are laced. by seen .with deeper perception and and more flexibility agreater foresight. The Probation Committee report has been revieued by. the County Probation De rtment and the departmental -cents will he trans- mitted along with arty comments to the Board of Supervisors at an early date. It may be noted that the report of the comittee conflicts directly with the report of the 1974 Contra Costa County Grand Jury in several respects. It may be noted also that the Probation Committee did not indicate the means of financing the various proposals which it made; the additional personnel which the committee recmaeade, for example,, would involve an additional annual county expenditure Board of Supervisors 14. March 69 1972 from property tax revenues of over $400,000. It any be noted further that the budget of the Probation Department was increased between the fiscal year 1965-1966 and 1970-1971 from approxi- mately $3,2012,000 to roughly $7,100,0000 9. S tial Districts Committee. Three reports were eve oge by the Sp—ed-ral Districts Committee. The first report deals with the subject of its survey of fair employment practices in Contra Costa Couxaty; the second, report sets forth recd mmendations on increas- i the salary of Supervisors and on their official status; and the third report contains re tions on the provision of funds so that Grand Juries may employ consultants with particular reference to review of specialized county functions and to review of special district .activities. With respect to fair employment practices, the committee states that its survey shown that,. in a review of 88 organizations and over 25,000 jobs, the overall statistics show 5.9 r.r cent black employment as compared to a 4r per cent population ratio and show a black hiring record of only 3.85 per cent by intra- county districts excluding those in the cities of Ricbmond and Pittsburg;—points to the good ale of the Bay Area Rapid Transit District in developing a positive program for minority hiring; and recommsnds that the Board of Super- visors take the lead in encouraging affirmative minority hiring practice statements, that the Board of Supervisors require a yearly minority employment re rt of all departments and agencies wi= its control (with the report tailored after Federal Employer Information Report EEO-1)9 and that the Board of Super- visors and the Grand Jury encourage all independent and inter-county districts to take part in the affirmative action program recommended by the committee. Board of Supervisors 15. March 6, 1972 The committee recommends, with respect to the Board of Supervisors, that the salary of each Supervisor be fixed at $19,200 (present salary is $14,500); that no Supervisor be permitted to earn outside income other than from personal investments held prior to being elected a Supervisor; that each Supervisor be provided with an administrative assistant to serve at his ppleasure (at an anticipated salary range of $1,000- monthly); and that such assistants be employed so as to Rerform independent research inasmuch as 'present Administrator system can only be a conciliator and arbitrator.'a In terms of the hiring of consultants, the committee reecommends, that the sum of $25,000 be appropriated for the use of the 1972 Grand Jury to pay for such services so that particular county functions, such as electronic data processing, and the work of special districts, such as the Bay Area Rapid Transit District, may be investigated with the aid of persons with special knowledge. The reports of the Special Districts Committee are being reviewed from an administrative standpoint although some of the content of the reportsm�iire attention in terms of policy determinations by the Board of Supervisors. It may be noted that special county efforts have been made to provide an opportunity for the employment of minority personnel and such efforts are be continued. It may be noted also that the employment of consultants must be evaluated in terms of desired objectives and costs in each case and that consultants have frequently been engaged by the county to review, make recommendatioas on, and implement improvements in the conduct of particular functions; the county data processoperation, for ample, was the subject of detaiing led study by consultants in 1969. • Board of Supervisors 16. March 6, 1972 10« Taxes and Assessment Committee. The report o axesanti A lsesOOTo�amittee is a forceful and well documented presentation of the facts related to the present extremely onerous property tax climate. The committee points out that under current eircumtauces an undue burden is placed upon the small businessman and upon the homeowner (particularly the retired aged.. and poor), that no action has been teen at the state level to relies. the situation, that preferential treatment has been given to certain categories of taxpA 0'. ..: that the .declining .assessment ratio applied to utilityprofes by the State B ird of h liaatipo s a .very, adverse effect upon :the taxpaying status of other nate pries of property owners,. and that date state legislative action is needed to diminish the oppressive property tax requirements The committee after a review of the recom- mendations of the 1.970 Grand Jtwy on the office of -the. County Assessor indicates that progress in' implementing them has been made. and points out the further steps which it deems desirable. The committee recommende that the property assessment lien date be fixed as of January 1 (rather than March 09 that an average inventory value be used for property taxing purposes, that action be taken through legislative measures and by infosmdng the general public to avoid and elimir.�ate preferential tax treatments, that the . method of establishing the market value of utilities be made more uniform with the formula used by County Assessors, and that further lowering of the ratio used in assessing .utility , ropert�i$ess be discouti=wd until such uniformity Is 0 17edP The County Assessor and 1 are in general agree- ment with the contents and recommendations of the report of the Taxes and Assessment Committee; the detailed cuts of the County Assessor will be submitted shortly along with mfr own. Board of Supervisors 17. March 6, 1972 11. General Comments and Becotions. The r ury IncLudes in its rumi report a one page statement of general comments and recommendations. Int the statement the Grand Jury criticizes the establishment and use of nonprofit corporations as a device to circumvent voter approval of bond issues, cites the addition (now in progress) to the Juvenile Hall and the construction of the County Administration-Building as examples of the uonprofit corporations arrangem t and recom- mends that the 1972 Grand Jury ei a on dependent firm of consultants to�stigate the efficiency of all departments of the county government (in addition tothe employ- ment of consultants to investigate special districts as recemsa,ended by the Special Districts Committee of the 1971 Grand Jury). It may be noted that the Board of Supervisor`- under the provisions of Section 25351 of the California Government Code and of court decisions related thereto has the duty to grsvide. facilities for couaty govesriment b=tions. it may-also be noted that in the case of the addition to the Juvenile Hall, 60 per cent of the voters approved 'bond issue financing- in the first balloting (in 1967) on this proposal and that 65 per cent of the. voters app °oved Bond issue fi�aanciag in the second bloting (in 1968) on this proposal; in both eleo;tions approval ofbond issue financing failed to receive the reTAred two-thirds . vote although a substantiial majority vote in favor was cast in both .elections. The non- profit corporationarrangement which was used in order to alleviate the serious overcrowding at the Juvenile Hall provided relatively favorable financial results taking into account the high interest rates which prevail. It may be noted further that the County Administration Building was not built under a nonprofit corpor- ation arrangement. but under a lease-purchase agreement with the Contra Costa County Retire- ant Board; in this case, the egsivaleut rental rate is far below that which is now necessarily being paid for the straight lease of less satisfactory privately owned space. Board of Supervisors is. March 69 1972 Prior comments have been made with respect to the employment of consultants (as wMested ul the Special Districts Committee); the over- al investf ati n suggested by the Grand. Jury must be similarly considered. 12. Press Releases. The 1971 Grand Jury approved Issuance o ppress releases in behalf of its Hospital, Clinics, and Social Welfare Committee, its Judicial Committee, its Law Enforcement Committee, its Public Works and Planning Committee, its Probation C mni ttee, its Special Districts Committee (3), and its Tax and Assessments Committees; copies of these press releases are included: 3n its final report. Th ppress releases are generally excerpts from ccsm�itte►e reports and do not require review and comments separate from attention to such reports. it is recommended that the Board of Supervisors acknowledge receipt of these preliminary summary cots on the report of the 1971 Contra Costa County Grand Jury and direct that a copy of them . 'he placed on file in the Office of the: County Clerks vith the under- steanding that detailed cats from county agencies and my office will be submitted later for review and action by the Board of Supervisors. JP&B/aa encls. TABLE OF CONTENTS PACE E AUDIT AND FINANCE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4x . . xm , . , . , . , A- CIVIL SERVICE. . . . . . . . . . . . . . • . . . . . . . . . . onaYa . sgsPApx • • • c . s • • 18 GENERAL COK,,IENTS AND RECOMMENDATIONS . . . . . . . . . . . • . . . . . . . . . . . 136 HOSPITAL, CLINICS AND SOCIAL 22 INTRODUCTION TO CONXITTEE REPOtt t'S• . . . . . . • . . . . . . . . . . . . . . . . . . I \ JUDICIAL. . . . . . . . . . . . . . . . . . . . . . . . . . . 31 LAW ENFORCEMENT ENT. . . . a . . • . . . . . . . . . • P . . q m x a n a • e • a a • • • a • • a • a x r 24 6 PLANNINGAND PUBLIC WORKS . • . . . a . b . . a ¢ c e . • ar ♦ a • • r ♦ • a a • . q • xa 5 PRESS RELEASES. . . P . . . . . . • • . . . • s . . . m . Y . P . . • . • P • . . . • . s . P . . . s . 3 9 x 6 ROBAT d.O . . . . Y • • O f . • ♦ • b A O • i s • . b . Y 6 m i a m ♦ ." . . • . . m 6 O a • O ♦ • . O q tl • O 66 SPECIAL DISTRICTS FAIR EMPLC Yb4ENT PRACTICES IN CONTRA COSTA COUNTY. . x . , . . . 88 RECOMMENDATION FOR MODIFICATION OF SUPERVISORS' STATUSAND SALAD. . , . . . f . . . . . . ♦ • Re . . • . Y . • ♦ . tl • • • P . . . . . . 96 FUNDS TO MIRE CONSULTANTS FOR TRE GRAND JURY. . . . . . . . . • . • 98 TAXES AND ASSESS 1 NTS.. P . . O . . . • . . 4 O . . m 112 I-J. F. 'Young, February 4, 1972 Sheriff-Coroner Attention 11. D. Ramsay . J. P. 1,1cBrien, Report of ' 1.971 Contra County Administrator Costa County Grand .Fury Reference is made to the subject report, a copy of which was furnished to you. Please ,prepare your comments on the parts of the report in which attention is given to the law enforcement function ; the parts of the reort to which 1 refer are age 14, pages 36 through 43, pages 53 through 54$ and pages 141 through 1430 You may wish to transmit your convents directly, to the Board of Supervisors. 1f you wish to have your dents transmitted to the Board along with mine, h®wavar, I will followthat procedures Please take prompt action on this mat r. JPMcB•bgg w 4 S N RE60VEO SHERIFF—CORONER FEB 29 1972 CONTRA COSTA .COUNTY, Contra Costa County Administrator Inter Office Memo •I( Ot To-: Chairman. Edmund A. Linscheid, Bd. of Su fi.bA-TE�:' Feb. 29, 1972 �,3 FROM.; Walter .F. Youn Sheriff-Coroner SUBJECT : Report regarding recommendati no s of. the Contra Costa County Grand Jury .(1971) In reference to.. the-.requirements. of Pena=1, Code. section 933 of the. State of California, I submit the following. comments-,regarding the. Grand. Jury final report as tliey pertain- to the- ;Sheriff-Coroner' s Department: PAGE 14 Ye•s,.' it is true that the department has only .one account clerk at the Martinez Office. We do have another clerical employee who is familiar with the accounting procedures to a degree which permits her to. fill in. during vacations and illness. We=cannot utilize ' regular' clerical ver.onriel an =the:-work:.. except as stated. To do so would be in­confli&& th the duties of their position classification. It should be noted that all 'of `the work completed by the account clerk is also processed by the Auditor-Controller and constantly checked by them. We shall instruct the Division Commander to insure that receipts are written in proper sequence. PAG. We concur. in part with the recommendation regarding police education. Students entering Colleges or Universities who wish to pursue. a. law .enforcement career should be made _aware of the physical qualifications to insure that the physically unfit do not complete a police- service education in the belief they can become police officers. We do not agree with the development of a standard course, , but would rather have standard majors with a wide latitude of electives choice. Our leaning is toward -a. general •. education with specialization only in areas of necessity, i.e. , Criminal Law, Constitutional Law, and 'Certain police vocational training as weapon usage,° .etc. The Sheriff now picks up ail prisoners each business day as remanded by the Courts to his custody. If county policy would desire immediate transporting; and if staff and equipment are made available, we would be happy to,. comply. Chairman Edmund A. 03inscheid - page a e 2 - Feb. 29.1972 We do not need portable recording equipment -in our vehicles due to our system of operation. PAGE 38 We have long advocated regulation of "Flea Markets We have an Educational Incentive Program. We agree with the need to standardize. police equipment. We would like to plan a helicopter program in -the future. We agree that the Sheriff' s Department should give service to all of Contra Costa County including the incorporated areas. PAGE 391 We have a well trained Reserve force. We approve of a ride program for officials to assist them in becoming more knowledgeable about police operations. We do operate programs of this type on a limited basis now, i.e. , District Attorney personnel, church, etc. , have participated. PAGE 40 We agree: New jail facilities are absolutely necessary as soon as possible. We have always requested that inmates at the Rehabilitation Center be permitted to perform maintenance duties under supervision. Hospital security for inmates has improved, but still is not. up to standard. PAGE 41 We strongly disagree that the classification of "Jailer" should be created. This department, at one time, employed two grades of Deputies - the lower grade for detention work. It was not successful. The savings were minimal and personnel retention problems were serious. We also disagree that corrections work can be competently carried out by lower paid officers. The correction problem of coftemporary times does not call for security provisions only. Programs: currently in the system and emerging programs are• complex calling for highly skilled and educated officers. We agree that private police agencies should be- required to refrain from wearing any uniform or partial uniform that may identify them as official police of a government agency. We concur on the need for bicycle registration. PAGE 42 We concur that facts should be obtained from police prior to sealing felons' files. Chairman Edmund A. finschdid- - page 3 - Feb. 29, 1972 .PAGE 42 Yes, we need additional patrol Sergeants due to the young age of our officers and minimal experience, they require maximum supervision. PAGE 43 All unincorporated areas have a need-for a, greater level of police service. PAGE 49 We disagree that the Sheriff' s Communication system should merge with the Disaster Office. The Sheriff' s Department is a twenty-four hour emergency agency. The communication system is the nerve center for the services we provide. We have the resources to respond to the citizen' s need. The Communications Center is indispensable for receiving and dispatching these calls. To economize and to increase the tangible services of the Disaster Department, it should be merged with the. ' . Sheriff' s Department. We could maximize the effectiveness and get real work output from the employees. PAGE 142 The Sheriff' s Department would be willing to provide county wide helicopter service- if the program were authorized and funded. We concur. The current jail is inadequate. We need new facilities. CC: J. P. Mc Brien, Co. Adm. In: the. Board`. of Supervisors of Contra Costa -County, 'State of California Januar.y 18 19 In the Matter of Final Report of the . 1971- Contra Costa County Grand Jury-. The Final. Report of the `1971 Contra Costa County Grand ,Jury having, been filed with .this Board on January 12, 1972; On .motion of Supervisor A.: M. Dias, seconded by Supervisor J. P. Kenny, IT :1S BY THE BOARD ORDERED that receipt of said report is -ACKNOWLEDGED;: and"_ -same is--:REFERRED. tothe, -County = Administrator. The foregoing; order was passed by the following vote : AYES: Supervisors J. P. 'Kenny, A. k. Dias , ^ -J. E;. Moriarty, E. , A. Linscheid. NOES None-,.- ABSENT" -'S one'. ABSENTcSupervisor ±W. N'. ..Boggess. 1-,hereby certify that the foregoing-is a true and correct-copy of an order entered on the minutes.of said Board of Supervisors on-the date*aforesaid. ec Superior Court Witness my hand and the Seal of the Board of Secretary (3 ) Supervisors' Administrator.: - _ affixed this 18th day of . January , 1972 W. T. PAASCH, Clerk By Y�GU�� y �2�Cat-�- , Deputy Clerk Lourette- Kincaid H?h 11/71 1nM - - - - -In the "Ooard .of: Supervisors _of. Contra Costa County;. State. of California Dec ember. 14 19 71 In the Matter-of, . Supplementary --lnformat1on. : Furnished by the Yrobation; Committee. of the- 1971 -Contra:: r Costa County Grand Jury. The Probation .Committee of the-. 1971 Coritra Costa County Grand Jury having -transmit.ted to this Board on December 6:, 1971 a report containing information on . alternatives to youth. detention in the Juvenile Hall. subsequent to. the, submission of its 'original report, and subsequent. to ,a;November 10, '1971 meeting with Supervisors J.-'P. Kenny.. and E. _A-. Linscheid on its original'- committee report; and The. Board' having..considered said. supplementary information and deemed :it desirable--that. the information. be - reviewed for possible. use in-µ-connection-with Probation Department functions; NOW, THEREFORE, ' on the. motion of -Sup ervisor E. A.` Linsche.id, seconded 'by Supervisor A. M.. Dias;., IT IS. By 'THE BOARD ORDERED -that aforesaid supplementary Grand Jury_data are REFERRED to the County .Probation Officer, Contra -Costa `County Juvenile Justice Commission, - _- and County Administrator for".evaluation- and report to the, Board. The foregoing order was passed by the following Vote:- AYES,,:--'- ote:- AYES;_- - Superv,is.ors` A. .M.- Dias, J.- E.` Moriarty, W:. N. Boggess:, E. A. Linscheid, . .J P. Kenny NOES:- . None:. ABSENT None. : hereby certify that. the foregoing is a true and'correct copy of an order entered on the minutes of said,Board of Supervisors'on the date aforesaid.` cc,: -.County Probation Officer Witness'my hand and the Seal of the Board of ':County Juvenile Justice Supervisors Commi1ssion affixed this .1 th 'day. ofDecember , 1971 CountyAdministrator W. T. PAASCH, Clerk Supervisor J. P. Kenny Supervisor- EA.LinscheidBy Deputy Clerk : . Elsie Pig o 00, _ -• l - H..24'1,1/71 10M Alymer B. Hussey..: 0 Chairman, Probation Committee 1971 Grand Ju_y P. 0. Box 11.10 Martinez, CA. 94553 GENE DEG .i 0 1971 W:.T. PAASCH CLERK BOARD OF SUPERVISOR& j CONT COSTA$O. Byr/ n `�ePuty , BOARD -OF SUPERVISORS CONTRA COSTA COUNTY i. ADMINISTRATION 'BUILDTNG MARTINEZ, CA. 94553 Attention: Supervisors Kenny and Linscheid GRAND JURY t CONTRA COST: COUNTY P.O. Box "1110 MARTINEZ, CALIFORNIA 94553 December 6 , 1971 W. T. PAASCH CL 'RK BOARD OF SUPERVISORS CO^;meq S A CO. Board of Supervisors By - ........... Deputy Contra Costa County Administration Building Martinez, California Attention: Supervisors Kenny and Linscheid Gentlemen: With the approval of the full Grand Jury and in response to your request at our meeting on November 10th, we herewith provide you with material containing ideas which are being used in other counties and states as an alternative to detention in a Juvenile Hall facility., ideas which are not being used by the probation department of Contra Costa County. The first enclosure is a report entitled "Position Statement on Foster Family Group Homes" which was prepared by the Citizens Council on Delinquency and Crime at Minneapolis , Minnesota on December. 13 , 1966. They open their statement with the following declaration: "Foster family group homes can, at a lower cost, help a greater number of delinquent children attain satis- factory community .living than are now given such help through existing institutional and single placement foster care facilities , therefore, foster family group homes , sufficient both in quality and quantity to meet the need for such facilities to care for delinquent children, should be established in Minnesota." In taking this action, Minnesota was following the family group home idea that has been in operation in the State of Wisconsin since. 1953. Let us not confuse the term "group homes" as used here with the same term as used in Contra Costa County. What we 'call group homes in-. this county are not private or subsidized- homes under, the ownership or management of married couples. r This plan is well known'-to our own probation depart ment. Several years . ago the department sent one of its staff- to Minnesota to look into it. If .-you make inquiries of Mr. Davis , no doubt you can have much more details on the plan than this. • Board of Supervisors -2- December 6 , 1971 The second enclosure is an outline of a similar plan for using foster.. group homes in Monterey County, Cali- fornia. The plan, which was authorized on .June 31 1970 , set up three categories of foster homes : 1. "Crisis" homes; 2 . "Group" homes; 3. "P _-ofessional parents" homes. Monterey County is stepping out of the familiar habit of past practice to find an alternative to institutional detention to gain more rehabilitation at less cost. The third enclosure describes the use of a family group home for delinquent girls in Stockton, C..ilifornia. It ' speaks for itself and needs no elaboration. The fourth and fifth enclosures are copies of letters from Ida Zadrow to R. Jornlin dated February 22 and May 7 , 1971 respectively. These two letters were accompanied by 28 pages of material. We will not burden this mailing with that material as it . is available to you in Mr. Jornlin' s file. The February 22nd letter proposes "emergency foster home" care for pre-school children as an alternative to the county hospital or the Edgar Childrens Home and suggest approval of a "policy to develop initially six subsidized homes for emergency shelter care in the county." (oursT The May 7th letter in addition to the emergency foster home care, proposes development of "intermediate foster homes for a typical child needing specialized long term care" . This is the type of approach to problems that we and you, the Board of Supervisors , should want to see more of in the probation 11epartment. As stated in our report, there has been no lack of ideas and action recommendations presented to the Board of Supervisors and the probation department by which to accomplish a shift of emphasis away from institutional detention. These are all available to you in the files of the probation and social service departments if you will make the personal effort to inform yourselves on these matters. We feel strongly, as we stated in our report, that the .road to the rehabilitation of delinquent juveniles does not lie in the direction of a larger juvenile hall. Present condition& at the hall prevail because acceptance of new ideas Board of Supervisors -3- December ' 6, 1971 and the initiation of more productive and less costly programs of treatment .have been so long delayed. In our November 10th meeting, we were told that Contra. Costa County was spending more per capita on probation services than any other county in California. The spending of money is not, in itself, an accomplishment. How the money is being spent, on what programs, and for what purposes is what is important. From our point of view, based on our studies , the , taxpayers of this county are. not getting their moneys worth in juvenile and adult rehabilitation. With the right leader- ship of the Board of Supervisors and the Juvenile Court, this situation can be reversed. Very truly yours, AMER B. HUSSEY Chairman, Probation Committee ABH:ea . .GRAND.JURY. CONTRA .COSTA .COUNTY P.O. Box 1110 :-MARTINEZ, CALIFORNIA 94553 . IJecember' 6 , . 1.971 Board. 'of Supervisors contra Costa County Administration; Building Martinez; California' .' Attention Supervisors `K.enny ,and Linscheid. Gentlemen. With the approval o f .the full �Grand• Jury and in response to your request at our',meeting ,on :November 10th, .we •herewith provide. you •wth .•materil containing ideas which 'are being used in =other. counties arid" states as. an alternative to -detention in.-a: 'Juvenile -Hall facility, ideas.. which• are not being used :by:-th&-probation dep4rtm'6ht. of:Contra ' CostaCounty. The" first enclosure .',is*. a, report entitled "Posit-ion Statement :on Foster `Famil`y GroupHomes''' •which was prepared by the Citizeris . Council _:on Del'inquen' cy,and "Crime at . Minneapolis•, Minnesota on:.December,':l3 , 1966. . ; They -open :their: statement with: the follow' ng,.declaration: "Foster family gr'oup,'homes can, ,at a lower. cost, help a` greater:'number..of delinquentchildren -attain satis-. factory community living ' than: are now given 'such.. help through exist n, " nst tutibnal 'and` .single placement foster care facilties;. •therefore' : foster family group homes , sufficient .both ' in quality and quantity • to me et .the'.need- for such- facilities to :.care for:delinqu:ent.- ch-ildrern•, should be established in Minnesp.t i :In .taking this. action, Minnesota was ' follow=ingF the family ;group.:,-home ideathathas been -in operation in..the State 'of Wisconsin :since 1953 ' ' Let,us not confuse the term_ "group homes"' as used. here with th6,"same term as used, in Contra Costa .County.. : What we call group. homes, iri"this .county are note ' private •or :_subsidized homes under •the 'ownership or 'management of married .couples': 'This-.plan. is: well known.:_toour.-.own probation depart- ment., Several' years ago the department' sent one of-:its staff to Mnne ota.-to. <look into it. If, you make in -o.f Mr. Davis'-, no doubtyou; can have much. more .details on .the; plan than• this , • i PBoard'of Su ervlsor`s i ',4 2n t" December :6, 1971 The; second .,enclosure his; an outline, ,of `a similar •-plan for �u`sing foster group thomes in Monterey County; Cali fornix, The plan, whch was auahor'ize'd',;on. June 3, 1970 set `three . categor es of;:;foster£-h'omes': E Cr S S'� k e i hoin s� , 21 "Group'' homes 1 P" f nal p 3; "' o esslio , arents' homes s 4t y j. tt . Monterey .-County is'�stepping out' 61 the familiar habit of} past practice. fo find",ari alternative,. to `inst:i,tuti- i detention to gain- more. rehab,il �t-q oh at` 1`'ess: cost The"t rd .:enclosure" des.cr'abes''th'e .use:''of.. a .family group home for delinquent gxir`ls in Stockton;, C �l:ifornia. ' ;It speaks for' itselfnd''needs no ';elaboration The four'th._and ffth''enclosures are copies of letters: from Ida ?,adrow to R. "Jornlin dated'''February 22; and 'May'':7 " 1971 ,respectively These two letters were ;ccompaned by 28 pagesof material We'`will not; burden >this 'mailing ''with> that' material: .as .t is.`'available t6: you'4 .A.,4brnlin' s.,file_: -The' February,22nd letter ;prop'oses "emergency foster home" -c'are for pre,-school -children ,as an alternative. to. the',., .county. tWspitai- or.''the,,- Edgar Childrens Home..,and ; suggest, homes , for -erner"enc;. shelter care in the count ours Th ;approval :of a, po.lic'y to � aevel'o i'riitially six subsidized g y y ` ou.=) May 7`th_fetter' in ,addition ;to' the „emergency',fost:er•'home .ca•re, proposes ,deve :opment of "intermediate` fosrter' homes for a typical child need'ing speclaliz,ed long term=care,, This•. is the type of rapproa'ch to problems that we and you;the Board ' ' o'f , Supervisors;, should` want to."see more' of in the probation' �iiepar biieht ,'-:A"9..gin: .our. :report, there has, been no; lack` of ideas -and .actioh#recommenda.tion's presented to the, Board 'of Supervisor s, and the probation department by `whic' h 'to accomplish sh'i'ft of. emphasis :;away, from: institutional ;detention The e` are alhvai'lable to you.:'in the fifes, of the pro.batorn and social service departments if, you „will make `the personal. effort 'to inform ,;yourselves. on these' matters F We feel 'stro` gt to in ur jor ' epo as we s t drt, that n the road .to , the rehabilitation:-. of delinquent juveniles. does not lie in ,the direction `of a 1•arg;er juvenile hall Present' coind 'tions at the ;yhal:l :prevail because acceptance of.''new:' ide- s W. t. I '4 s �- •f � ward of Superyisors �,` 3 x :December: &, 1;97{1 and .the In•itiatlon ;of' m' ore .pr,o d,-u' c"-' iand less costly programsof treatment shave 'been 'tsor hong delayed„ ln':our November 10h meetingj.:w,e .were.• told; hat: Conra. Costa' County a' , r was .spending ,more per',:`eapita on probation ;services . than. any other' county' in C'. l:ifor,n�a ` ax T�ze, spending of„ money is` `not, 4 in {self; an. accomplishmer't How,�.the money is hea ng , spent, . ..A41, , l. {on wh :t .programs, and f.or .what purposes :is 'what :i's ' important.' From'' our'A"poz'n=t, of Svzewfbased ©n our studzes , the taxpayers `of this county :are inot�gett ng:'their moneys;,worth n uvenil°e and adult 'rehabil ildt�.on. With •:Che.`:ra.ght: leader * ship, of .the Board o£ -Supervisors aril the. Juven� e, Court, ' this S tua•txon: can{:,'be,tre ,6r.sedp . .. Very tru y ours , a* ZYMER P- HUSSEY- Chairman°, "Probation .0 bT&A-ttee . 44 , a 3 , c' • h r , k o k i :> 4 s j �� _._-.t�yr� '� lm ) � `"'moi �. ...� �� r, / �. _ ;:ti_ � L r • , 'v ��''r• �.r '' _'�.'-` t - �`•` -,(, t. _,..- _ ""`_ ..._ -� r' / - ^lice-� r Lct osIl ON.f Q YJ, ._l- 4-7 r- ¢�'� i �. c- -'� , � � � � �f'� "� !� �� �, - "l �» � - � •--^- ter'_ .. 7'�/� ,n '�J-. , ,r-�-.�.i^:r �-•�.��'�+�'"y�'/r--� :��' t r »-L`� 1 \ (� '' =�s`c .�"y i �v--� `, ;''" =�.�,.� r -\ _ - ._'��-J f �c-� C✓ � i J � �� T '\,4.\ ,�. -�, '- -+��/: .lam '��- � '_-R ..- '�! �r r.gi �j}j' mer ✓ rC c v r 1"u _t L ip✓r Pa� s_ , = - � ��`�-�-�- r � 4 -�-w� ��` "�` ' `�� � ` � o Deh��l�en Y '_ �;� �, '���` •rte S �aune Gitize?� a 03� h4 pro uce minB / rata, 554 ne eg,pell �� ,},jr"r �`c, f ,,.-'^ �f 1 3``a'� `.l; �.t \JY`,f-r,. .',-' 'F....r'ti/ - ,� ,�.�5.� .� - ,`l.2 t Met�-`'s_, `" `� r'. �' �kr:_ .- ;J � ,fit ~_ �-" %� --- _1� _'.�' r - �= ✓�- - �^. „- } „/ _ `'r%` r4: •-�.�_ < 'L Qlc�'te ! b_ a lltr° - 3 rauP�- na Crxm r L oluntary,� .� �� Gct�ori&,a, 1 9f Coxa . r l�e-0 (j 27,1 �GarreCt2 "� K -SPOASOT ,.� -71 • Sponsored by Correctional Service of Minnesota cifizew cotitlzcd on 2elinquiency anICrime 215 PRODUCE BANK BUILDING MINNEAPOLIS, MINNESOTA SS403 PHONE: 339-7227 OUR BUSINESS IS YOUR PROTECTION STAFF CONSULTANTS Gerald L.Dahl Allan C.Hubanks CHAIRMAN FayetteSherman,Vice-Pres. George A.Hormel&Co. o Austin December 13, 1966 VICE-CHAIRMAN Julian B.Baird Retired Chairman of Board First National Bank St.Paul • Blue Earth TO THE CITIZENS OF MINNESOTA Clarence Myers,Past Pres. Minnesota Farm Bureau Duluth In 1964, the Minnesota Citizens Council on Delinquency and Robert S:Mars,Jr.,Vice-Pres. q y W.P.and R.S.Mars Company Crime began a study of foster family group homes for the Excelsior • residential treatment care of selected delinquent children. Mrs.Dwayne o•Andreas During our study we became convinced that group homes Hibbing for delinquents were needed in Minnesota. James P.Hitchcock,Publisher Hibbing Daily Tribune Hopkins Mrs.Charles M.Huffman,Past Pres. We commend the Minnesota Legislature who shared this Minnesota Congress of PTA conviction by appropriating $108, 00,0 during the 1965 Minneapolis' Mrs.Wright W.Brooks,Past Pres. Session enabling the Department of Corrections to develop Minnesota Council of Churches seven group homes. y Arthur a (Retired) The value of these homes has ahead Norhwestern National ional Life Insurance Company been demonstrated in the lives of several delinquent child- The Rev.Robert Lesch Correctional Service of Minnesota ren who have distinctly benefited from the program; Mrs.Russell T.Lund Bradley L.Morison,Associate Editorial Page Editor(Retired) Minneapolis Tribune The Citizens Council on Delinquency and Crime continues Leonard H.Murray,Pres. to recognize the importance of group homes for delinquent Soo Line Railroad Company �a P b' p Philip Neville,Past Pres. youths and recommends that the continue to be developed Minnesota State Bar Association y p David J.Winton,Chm. to meet this need in Minnesota. The Winton Company Owatonna Mrs.William Whiting The findings that .led us -to this recommendation are set, Redwing forth in this document. As you review .its contents we hope W.D.Sweasy,Pres. q''• Red Wing Shoes you will concur with our findings and join in the support. of Redwood Falls foster family group homes.' Mrs.Scott Schoen,Past Pres. Minnesota Federation of Women's Clubs Rochester Sincerely yours, Mrs.S.A.Christian,Pres. Minnesota Division,American _ Association of University Women St.Paul Edwin H.Christianson,Pres. 1 Minnesota Farmers'Union Reuel D. Hermon Fayette Sherman Webb Publishing'Company Leonard LaShomb.Exec.Vice-P Chairman Minnesota O ta AFL-CIederationres. of Labor Herbert L.Lewis,Editor(Retired) St.Paul Dispatch-Pioneer Press Paul A.Schilling,Chm.of Board Waldorf Paper Products Company South St.Paul TJ.0 an B. Baird Norris K.Carnes Gen.Mgr. Y ice—Chairman Central Livestock Association,Inc. Virginia Harry Kullberg,Mgr.of Operations Jones&Laughlin Steel Co. Wayzata Mrs.F.Peavey Heffelfinger 9 TABLE OF CONTENTS Item Page INTRODUCTION . . . . . . . . . . . . . . . . . . 1 PROGRESS REPORT ON THE SEVEN GROUP HOMES . . . . . . . . . . . . . 2 FINDINGS, . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 RECOMMENDATIONS . . . . . . . . . . . . . . . . 5 CONCLUSION. . . . . . . . . . . . . . . . . . . . 7 APPENDIX A A BILL FOR AN ACT, Minnesota Statutes 1965, Section 242. 19 . i APPENDIX B A BILL FOR AN ACT, Minnesota Statutes 1965, Section 260. 185 Subdivision land 260. 251 . . . . . . . . . . . . . . . . . 00 APPENDIX C Wisconsin's Successful Experience . . . 0 •viii _ r • POSITION STATEMENT f .. ON FOSTER FAMILY GROUP HOMES The •Citizens' Council on:Delinquency and Crime for.Minnesota is convinced that: FOSTER FAMILY GROUP HOMES CAN, AT A LOWER COST, HELP A GREATER NUMBER OF DELINQUENT CHILDREN ATTAIN SATISFACTORY COMMUNITY LIVING THAN ARE NOW GIVEN SUCH HELP THROUGH EXISTING INSTITUTIONAL AND SINGLE PLACEMENT FOSTER CARE FACILITIES. Therefore, FOSTER FAMILY GROUP HOMES,. SUFFICIENT BOTH"IN QUALITY AND QUANTITY TO MEET THE NEED FOR SUCH FACILITIES' TO CARE FOR DELINQUENT CHILD- REN, SHOULD BE. ESTABLISHED IN MINNESOTA. --INTR•ODUCTION The foster family group home is a relatively new development in residential treat- ment care:for delinquent children. - The group home is designed to provide a family seating far-five to ,eight yourigsters with similar behavioral,problems who .must be removed from their-own.home but who,do not need the. close controls of institutional care, The delinquent child usually finds it difficult to adjust to adults, specifically parental figures.: This,difficulty .usually results from their poor experiences within the home, school, and neighborhood. They often.cannot tolerate the close relation- ship with adults which .occurs, . especially between parents:and children, •even when the child is placed in another home. Until quite recently a single placement foster home has generally been the only.alternate home setting for delinquents. In this setting the child. often,felt ill-at-ease and would adjust poorly, moving from one home to another, often ending.up in.a correctional institution. .. The. Citizens ,Council, on Delinquency and .Crime:ha,s found that a.multiple placement foster home,. commonly referred to as a group home, does not--require the child to establish as close a relationship with the group home. parents.:-,':Group home,parents, usually middle aged and experienced in raising their own children, function more like an aunt or uncle than a parent. This type of relationship seems to be quite successful, especially for the older delinquent who is in the process of growing away from family ties. We believe that this is one of the major factors in the suc- cessful use of-group homes for_delinquents in need .of;a different home environment. After carefully studying the group home.concept.and visiting a very successful group home in Wisconsin, the Citizens Council joined with several other groups during the.1965. Legislative Session to -support the-establishment of group homes . for delinquent.children.in Minnesota. The Minnesota Legislature demonstrated its =2= interest in and support of group homes by appropriating $108, 000 for the Depart- ment of Corrections to develop seven of them during the 1965-66 biennium. PROGRESS REPORT ON THE SEVEN GROUP HOMES Only one of the seven group homes,evidenced any,significant instability in opera- tion. While efforts have been made by the'De'partment of Corrections to resolve this problem situation within the family, it appears that this home will be termi- _ nested. The six other homes have demonstrated promising success during the very short time they have been in operation. Of the '31 children placed in "the six homes, only five failed during the permanent placement and had their !probation or parole revoked. Five youths have completed the group home program. Of this number, one youth enrolled in college, another in the area vocational school, and-a third is fully employed. A fourth youth, after a: successful adjustment, was returned to his own family, while a fifth youth was placed independently and is self-supporting. The Minnesota Reception and Diagnostic Center evaluated the first 25'children placed in group homes with regard to the nature.and intensity of their maladj'ustmenj and need for care. . The report from this evaluation indicated that the "best pros- pects" were not chosen to be placed in these homes, but rather a cross section of all delinquents that come under their care, including those who are quite disturbed. While the number of children placed in group homes thus far has not been large, ' these placements have already relieved, somewhat, the large' number of children in the correctional institutions who remain there unnecessarily for several months because they lack a suitable home. The.Minnesota Citizens Council on Delinquency and Crime has carefully 'reviewed the newly created group'home's for delinquents in Minnesota and is- pleased about the success of this program, The Council is convinced that there should be more facilities of 'this, type throughout the State to provide this important care for delin- ,.quent children who- seem to adjust most satisfactorily in this setting., We, there- fore; , submit the following findings and recommendations. FINDINGS I. THERE ISA COSTLY LACK OF SUITABLE RESOURCES FOR THE COR- RECTION AND TREATMENT OF DELINQUENT CHILDREN WHO NEED SUCH CARE OUTSIDE-OF THEIR OWN HOME. A. The State training schools for delinquent children are overcrowded. It costs the taxpayers annually $2, 600 per child at the Boy's Trainint. School at Red Wing and $3, 000 per child at the Home School for Girl: -3- at Sauke Centre. This.does not include-the"cost of capital expendi- tures, which is estimated at $10, 000 per child, for new facilities which will eventually be required unless' other facilities, such as group homes, are developed to alleviate this growing institutional populatio n. B. Foster family,group homes* cost considerably less than institutional care and are appropriate for.certain ,selected delinquent children. Experience in Wisconsin and Ramsey County has shown that it costs approximately $1, 680 to $1, 800 per year to care for a child in a foster family group home. C. In terms of human lives, allowing a child to live in an unsuitable home situation greatly increases' the probability of his remaining a liability rather than becoming an asset to society. Also, consider- able damage is frequently done-to a child'who has been granted parole but must remain in the institution for an indefinite period of time solely because of the lack of a suitable.living arr`angeme nt• in the community, It not only costs rho're to-keep a child in an institution beyond the appropriate time for his release,' but it a13"o reduces the probability of a successful adjustment in the free community under probation or parole supervision.' Approximately 24"e cent of the runaways from the State'Training School for Boys during the past year had been granted parole but had their, releases delayed an average of three months because of the lack of'a suitable placement in the community; A similar situation exists at the Home School for Girls at;Sauke Centre-where girls who'were ready for parole were retained at the institution for an average of four and o'he-half-months because their own homes were unsatisfactory and foster home placements could not be found. This is costly! II. THERE CONTINUES TO BEAN URGENT NEED FOR THE DEVELOPMENT OF FOSTER FAMILY GROUP HOMES FOR DELINQUENT CHILDREN. A. A detailed case study of all juveniles released'"from various facilities during the calendar year 1964 showed that 38 percent of the 'girls and 26 percent of the boys'should not be returned to their own homes, but rather placed in foster type"facilities. B. ,Juvenile Court Judges and Probation Officers throughout the State have strongly emphasized the urgent "need.for group homes for county probation cases. To determine this' need'a survey was made in August, 1966 of Juvenile Judges and Probation.Officers in 87 counties. Fifty-nine counties responded by October 1, 1966 as follows; -4- Estimated number of persons needing a .group ,home placement Females Males Total Present needs 123 220 343 Total need for one year 172 350 522 III. ALTHOUGH FOSTER FAMILY GROUP HOME CARE IS CERTAINLY NOT .THE ONLY SUITABLE FOSTER CARE FOR ALL DELINQUENT YOUTHS, IT IS- GENERA LLY FOUND TO BE MORE APPROPRIATE THAN SINGLE -FOSTER HOME..CARE FOR .THEFOLLOWING REASONS: . ' A. The age of most delinquents who require this type of care (over;l.5 years of age on the average) generally adjust poorly in single place- ment foster homes. Except in,a small,percentage of cases, delin- quent children have just not,"worked out" in single placement foster homes. B. Single placement foster homes have been mainly a facility for the nondelinquent child. One reason for this.is that "delinquency" and "the delinquent" are negative concepts in the eyes of many people. Therefore, delinquent children. are difficult.to place in; single place- ment foster homes. C. The amount of money paid.for board. and room for foster homes by .many county welfare departments is,grossly. inadequate to attract the quality and number of foster family group home parents that are needed for this particularly difficult responsibility. D. Welfare department orientation is traditionally, more concerned with dependent and neglected children than with .delinquent children. As a result, some welfare departments say quite frankly that. the recruitment of foster homes for delinquents is low on their list of priorities. We must recognize that welfare departments have large workloads,and staffs which are already thinly spread in many places. IV. FOSTER FAMILY GROUP HOMES ARE PRIMARILY NEEDED FOR THREE CATEGORIES OF DELINQUENT CHILDREN: A. . Juveniles on parole from the Youth Conservation,Commission institu- tions whose homes are unsuitable or who have no home. B. Juveniles .on probation.from_the Youth Conservation,Com�nission who, at the.Diagnostic ,Center, .were found not to require institutional care but whose homes are not suitable,for their return. C. Juveniles. on probation from the juvenile court who do not need insti- tutional care, ' but who should not be returned to their own unsuitable homes. V. THE DEVELOPMENT OF AN ADEQUATE FOSTER FAMILY GROUP HOME PROGRAM FOR DELINQUENT CHILDREN IN MINNESOTA- NEEDS STATE LEVEL PLANNING AND FINANCING THROUGH THE DEPARTMENT OF CORRECTIONS. A. The many responsibilities of the county welfare departments preclude their placing a: high priority on the development of facilities specif- ically for delinquent children. B. Rural counties lack both the financial resources and a sufficient number of delinquent wards to encourage or justify the development of a foster-family group home program. C. One of the largest needs for group homes is in the area of Youth Con- servation-Commis Sion parolees who are.1. thought.of by most county welfare boards as distinctly a "State problem. " RECOMMENDATIONS Based upon its findings and the progress of the first group homes established during this biennium, the Minnesota Citizens Council-on Delinquency and Crime recommends that: I. THE MINNESOTA DEPARTMENT OF' CORRECTIONS SHOULD CONTINUE TO DEVELOP A 'FOSTER FAMILY GROUP HOME PROGRAM FOR DELIN- QUENTS WHICH WILL- BE ADEGUATE TO MEET' THE NEED FOR THIS TYPE OF FACILITY IN MINNESOTA. " To meet the currently,expressed need for.group homes in Minnesota, 100 to 150 group homes would have to be developed. This estimate is based on"current needs at a ratio of five. children per home. In order to provide quality homes and adequate training for group home.parents and staff alike, these homes should be developed in stages, II. THE FOSTER FAMILY GROUP HOME. PROGRAM ESTABLISHED IN MINNESOTA SHOULD BE ABLE-TO PROVIDE CARE AND TREATMENT FOR THREE PRINCIPAL GROUPS OF DELINQUENTS. A. The Youth Conservation Commission parolees. A state wide system of-group homes which would-be accessible to the .Youth_Conservation Commission (YCC) parolees is essential. The supervision of these wards and the entire costof their care should be provided by the Youth Conservation Commission. • -6- Be The Youth Conservation Commission probationers. These are youths who. have been evaluated at the Minnesota Diag- nostic and Reception Center at Lin Lakes and have been placed on probation. Many of these youths need to be removed from their own homes but do not need the controls of institutional care. Foster family group homes may be the, best plan for these youths and should be provided by the Department of Corrections. The cost of care in this out-of-home situation should be shared on a 50-50 basis by the State and the county. The. plan for sharing the cost in this manner ,would discourage unnecessary commitments to the YCC'of children who do not need institutional care but should be removed from their own homes. 1 C. The child on,probation from Juvenile Court, The child who is on probation from Juvenile Court could often make a satisfactory adjustment in a foster family group home. For many rural counties about the only choice the Court now has for the child who must be removed from his present home is to commit him to the State correctional institution. The establishment of foster family group homes, administeredby the State Department, of Corrections but available for direct placement from Juvenile Court, would pro- vide a very constructive alternative disposition for the Court. The cost of operating these homes should also be shared on a 50-50 (state--county) basis. Because of the controls required in partial state financing, foster homes not under welfare supervision would be subject to administrative standards established by the Commissioner of Corrections. 2 III. SPECIAL CONSIDERATION SHOULD BE GIVEN TO FOUR ESSENTIAL ELEMENTS IN DEVELOPING AN ADEQUATE FOSTER,FAMILY GROUP HOME PROGRAM, FOR DELINQUENTS IN MINNESOTA. . These elements are: A. Adequate group home parents who are strong, mature, and are able to sustain the daily pressures of living and working with delinquent children who are often aggressive and hostile to supervision. Be Readily available supervision of an intensive, firm nature from a competent staff person. - This person would.advise the ,group home parents, supervise the 1. To implement recommendations A and B, see Appendix A, Amended Legi slatio n. 2. To implement recommendation C, see Appendix B, Amended Legislation. -7.- delinquent's behavior within the home, and counsel with the families of the delinquent. Adequate training programs and reasonable case- loads are essential for the State's probation and parole officers who will provide guidance for the group home parents and supervision of. • the individual delinquents within these homes. 3 C. A sound financialplan which provides•adequate payment for this special-, kind of foster" care. This type of care annually costs approximately $1, 680 to $1, 800 per child. The financial plan should include a' subsidy program to insure the retention of foster parents with competence and experience and also to recognize the greater problems`in d'e'aling with delinquents. Community support,' acceptance and-nondiscriminatory,attitudes. Every effort should be made to assure adequate public'under standing of the operation and goals of this program. In order to insure an adequate'number.of mature group home parents capable'of working with the delinquent children social welfare agencies, citizens groups, as well as others should participate in andfitensive public education and group home recruitment program. E ::°CONCLUSION The children who a're placed in-group homes should Ve' carefully,screened.and sel- ected•to insure the most effective use of these facilities and to provide the max- imum protection to''society. In`develop ng and expanding-a foster family group' home program we should also benefit from the experience of similar programs in other states. The Citizens Council has 'carefully studied'Wk§consin's progyram•and personally visited one of their very successful group homes. 4 Foster family group homes should never be used as a cure-all for the problem of delinquency and youth crime. We recognize the group home as one' of several"' effective treatment programs for delinquent children. We must also continue to recognize the'va:lue•,of probation and parole supe'rvision`i'n'the juvenile's own home, the value of single placement foster homes in properly selected cases, as well as the necessity and value' of comrriitnments to' institutions that are `truly corrective; whether they be operated by the Department of Corrections, the counties or private organizations. However`, we'believe•gr6up home care can effectively help many of these children and youths toward satisfactory community living. The Citizens Council'on'Delinquency and Crime, iher.efore,, recommends that-the Department of Corrections continue to develop and use foster family group homes for the treat- ment and`care of delinquent youth: 3. Refer to CCDC "Position Statement on Probation and Parole Agents."' 4. See Appendix C for a description of Wisconsin's group home experience. APPENDIX A A SILL FOR AN ACT. RELATING TO THE YOUTH CONSERVATION COMMISSION; AMENDING MINNESOTA. STATUTES, 1965, , SECTION 242, 19.. BE IT ,ENACTED.BY THE LEGISLA.TURE.OF THE STATE OF .MINNESOTA: ;..;;Section .1., Mi-nne.sota-,Statutes 1965,. ,Section 242,.19Js amended to read: 242. .19, /METHODS ,OF CONTROL/. .When-a per.so.n has.been committed to the,-,commission it may. .. , M -- (a) .place him on ,probation under such supervision and,conditions as it believes conducive-to law abiding conduct; (b) if he has been committed to the commission upon conviction of a felony or gross misdemeanor, order his confinement to such reformatory, state prison, Jail or other place of,confinement to which he might have been sentenced by the court in.which he.was,convicted except for Minnesota.Statutes, Chapter 242. Such reformatories, state .priso.ns, jails or other places of confinement are hereby required to accept such persons in like manner as though they had been committed by such court; (c) if he has .b.een committed to,the commission by a juvenile court,upon a finding.of his, delinquency, order, his confinement to. the+state_training. school for boys or. the Minnesota home school for girls and such schools shall accept such persons .so committed to them, ,.or to a,.group foster home. under the control of the commissioner of corrections, or to private schools.or-institutions established.by law or incorporated under the ld*s.of this state that may care for delinquent children; (d) order his release on parole from confinement under such supervision and conditions as it believes conducive to law-abiding conduct; (e) order-reconfinement,or, renewed.parole-as. often as commission believes to be desirable; _ (f) revoke or modify any order, except an order of,discharge, as often as the.commission believesJo, be desirable;,. (g) discharge him from its control_when it is, satisfied .that such discharge is consistent with the protection of the public; (h);if it.finds him eligible for.,,probation or,parole, :and,it -appears-from the commis.sion's investigation.that.conditions in the.home:of his..,parents or ,guardian are .not.:conducive .to law-abiding .conduct, refer .the, child, together with its findings, to a county welfare board or a licensed child placing agency for.placement in foster care or when"appropriate, for ;initiation of dependency;or::neglect•proceedings as provided,in sections 260. 011 to,260•. 301•. The,commission shall reimburse county welfare boards for foster costs it,incurs for, such. children while,on :probatio•n or parole to the extent that:funds for this purpose are made available to the 'commission by the._legislature.., If such-.child is granted probation and placed,in:a group.foster care facility::as,•provided.in.clause (c) one half of. the cost of such, care shall be paid from .the welfare funds of:-the county ofcommitment,upon certification by the director of the commission of the fact of such placement. -iii- APPENDIX B A BILL FOR AN ACT RELATING TO THE JUVENILE COURT; AUTHORIZING PLACEMENT -OF DELINQUENT CHILDREN IN GROUP FOSTER CARE FACILITIES; PROVIDING FOR PAYMENT OF COSTS OF SUCH CARE, AND AMENDING MINNESOTA STATUTES 1965, SECTIONS 260. 185 SUBDIVISION 1, and • 260. 251. _. . BE IT ENACTED BY THE LEGISLATURE OF THE STATE OF MINNESOTA: Section 1. Minnesota Statutes' 1965, Section 260. 185, 'Subdivision •1 is amended to read' 260. 1-85 ,/DISPOSITIONS; DELINQUENT- CHILD/ 'Subdivision L' -If the'court finds that the child is delinquent; it shall enter ani order 'making any of the following dispositions of the- case which are-deemed necessary'to`th& rehabil- itation of the child: (a) Counsel the child or,his parents, guardian, or custodian; '(b) place the child under the- supervision of a probation officer or other suitable person in his own home cinder- conditions prescribed by the court including reasonable rules for his conduct and the conduct of his parents, 'guardian, or custodian,. designed-for the physical,. mental, and moral well-being and behavior of the child' or,: with .the consent-of the commissioner of corrections; in a group _ foster care -facility which is under the management and: supervision of said commis- sioner; (c) Subject to the supervision of the court, transfer legal custody of the child to one of the following: (1) A child placing agency; or (2) The county welfare board; or -iv- (3) A reputable-individual of good.moral character; or (4) A county home•school, -if the county" maintains a home school or. enter into an agreement with a county home school; (d) Transfer"legal custody'by commitment to the youth conservation commission . (e)'Ii the child is found to. have violated"a state or local law or ordinance which has resulted in damage to the property-"of another, the court may order the child to'make reasonable restitution for such damage; (f) if the child is in need of special treatment and:car.e for his physical or mental health, the court may, order the child's parent, .guardian, or custodian to provide;It. 'If'the parenti guardian, or custodian fails to provide this areatment or care, the court may order it provided. (g)'If the court believes that it is in�the best interests. of"the child.and of public safety that the driver's "license of the"child be cancelled until -his eighteenth birthday, the court may recommend•'to the commissioner of.highways the.cancella- tion of the-child's license for' any period up to the child's eighteenth birthday, and the commissioner is•hereby authorized to-cancel such license without'a hearing. At any time before the termination of the period of cancellation, the court.may, for good cause, recommend to the commissioner of highways that, the child be authorized to apply for a new license, and the commissioner may so authorize. Subd, 2., Except when legal custody is transferred'under the .provisions of subdivision 1, clause (d), the court may expunge the adjudication of delinquency at any time that it deems advisable. Subd. 3. When it is in the-best interests' of the child to do so and when ' child has admitted the allegatior"is' contained in the petition before the judge or -v- referee, but before a finding of delinquency has been entered, the court may con- tinue the case for a period not to exceed 90 days. During this continuance the court may enter an order in accordance with the provisions of subdivision.1, clauses (a) or (b) or. enter an order to hold the child,in detention for a period not to. exceed 15 days on any one order for the purpose of completing any consideration, or any inves tigation or examination ordered in accordance with the provisions of section 260. 151 Subd. 4. All orders for supervision under subdivision 1 (b) shall.be for an indeterminate period unless otherwise specified by the court, and shall be reviewed. by the court at least annually.. All orders under subdivision 1 (c) shall be for a specified length of'time set by the court. However, before an order has expired and upon the court's own motion or that of any interested party, the court has continuing jurisdiction to renew the order•or, after notice to the parties and a hearing, make some otherdisposition of the case, until the individual is no* longer a minor. Any person to whom legal custody .is transferred shall report to the court in writing at such periods as.the court may direct. Subd: .5. When the court transfers legal custody of a child to any licensed child placing agency, county home school, county welfare board, or, the youth conservation commission, it shall transmit with the order transferring legal custody a copy of its findings and a summary of its information concerning the child. Section 2. Minnesota Statutes 1965, Section 260. 251, is.amended to read: 260. 251. /COSTS OF CARE/. Subdivision 1. Care, examination, or treat- ment.- 'Except where parental rights are terminated, whenever legal custody of a child is transferred by the court to a county welfare board, or when legal custody is transferred to a person other than the county welfare board, but under the super- vision of the county welfare board, or whenever the child is placed by the court -vi- with someone other thain its-parents pursuant to section 260. 175, clauses (a), (b), or (c), or whenever a minor is given physical or mental examinations or treatment under order of the court, and no provision is otherwise made by law for payment for the care,- examination, or' treatment of the minor, these costs are a charge upon-the welfare funds of the county in which proceedings are held upon certificatior of the judge of juvenile court. The court may inquire into the ability.of the parents to support the minor and, ,after- giving the parents"a reasonable opportunity to be heard, may order the parents to pay, in the manner and to whom the court may direct, such sums as will cover in whole or in part the cost of care, examination, or treatment of the minor. Jf the par ents fail to pay this sum without .good reason;- they may be` proceeded against for contempt, or the-court may inform:the county attorney, who shall proceed against the parents to- collect the unpaid sums, or:both: Subd:' 2.. Whenever zCchild is placed in a group, foster�care.facility which is under the management and supervision of the commissioner of corrections the cost of providing such care shall upon certification by the juvenile court be paid from the welfare fund sof the county in which proceedings are held. Pursuant to regula- tions established by the commissioner of, corrections the state from funds appro- priated for such purposes` shall reimburse such county for one half of-such costs. Subd. 3. 1 Court expenses.- The- following expenses are a.charge upon the county in which proceedings are held upon certification.of the judge of juvenile ,cour or upon such other authorization provided by law: (a) The fees and mileage of witnesses, and the expenses and mileage of officers serving notices and subpoenas ordered by the court, as prescribed by law. (b) The expenses for travel and board of the juvenile court judge when hold- ing court in places other than the county seat. -vii- (c): The expense of transporting a child to place designated by a child plac- ing agency for the care of the child if the court •transfers legal custody to: a child placing agency. (d) The expense of transporting a minor to a place. designated by .the court. (e) Reasonable compensation for an attorney appointed by the court to serve as counsel.o.r.guardian ad litem. Subd. -3-.- 4. Legal settlement. The county charged with the costs and expenses under subdivisions 1 and 2 may recover. these costs and expenses from the county where the minor•has legal settlement for poor relief purposes by filing verified•claims which shall be payable as, are other claims against the county.. A -detailed statement of the facts upon which the claim is based shall accompany the claim. If a dispute relating to poor relief settlement arises, the county welfare board of the county denying legal settlement shall send a detailed statement of the facts upon which the- claim is denied together with a copy of the .detailed statement of the facts upon which the claim•. is based to the commissioner of public welfare. The commissioner shall .immediately investigate -and determine ,the question of poor ,.relief settlement and shall certify,his- findings to•the county welfare board of each .. . county., •The decision of the commissioner is final and shall be complied with s unless, within 30 days thereafter, action is taken. in district court as. provided in sections`261,08 and 261. 09.°. . =viii APPENDIX C Wisconsin's Successful Experience Wisconsin, which has used foster family group homes for delinquent children and youth since 1953, operates an extensive program and is in the process of enlarging it. It has found that gradually through the group living situation these rejected, insecure, and generally mixed-up youngsters are able to establish some relation- ships with other youngsters and with the group parents in the home. Usually, they arrive with a wide variety of poor habits--in eating, personal hygiene, studying, religious practices, working, playing, and even sleeping. Capable foster parents working with the group have been able to help youngsters to overcome such habits. The boys or girls placed in any one group home are approximately of the same age, and all those in any one home either go to school or go to work. Members of the Citizens Council visited a group home for five boys an a dairy farm near River Falls, Wisconsin. All go to school during the winter and despite their prior generally poor school records, none of the boys in this group home had truanted or caused any trouble in the school, and most found their grades improving. This is a remarkable record, quite different from that of parolees placed in traditional single-child private homes or returned to their own homes. Like most of Wiscon- sin's group homes, the River Falls home finds five adolescents the ideal number. The boys share two bedrooms, eat with the family, help with the household chores and with the milking, go to the consolidated high school on the school bus, enjoy parties and have dates, and attend church on Sunday either with the family or at the church of their own denomination. Over several years, the River Falls home has given care to 40 boys of whom only two committed new offenses, and three failed to work out satisfactorily and were returned to the training school. Not one ran away. r Lit ening Division COUNTY OF MONTEREY Courthouse WELFARE DEPARTMENT XKZ-X'W P.0. BOX 299 WILLIAM H. LEACH, DIRECTOREl XK. QgrSN.�Cr�.R A'CX } SALINAS, CALIFORNIA 93901 F19 i PLEASE REPLY 70 ADDRESS CHECKED: August 26, 3970 - i D j Mrs. Esther Redel Foster ?-Iome Coordinator 1L 65 Division of Children's Services �� 1 1 �� 4 Contra Costa County Socia]_ Service Department SOCIAL SERVICE ;��ENT 85 Cleveland Road H j�`� ` Pleasant Hill, CA 94523 Q `� V t D Dear Mrs. Red.el: N ov Fr 1970 ' Please refer to your letter of August 6, 1970. SOCIAL SERVICE DEPARTMENT z DCS-E-C In order to reply to your questions regarding the three new categories of foster homes to be developed in Monterey County, I have included copies of descriptions r of such homes and a copy of the recent resolution authorizing theseby the Monterey County Board of Supervisors. You will note that these homes will be used for de- linquents only. To date, we have not licensed ar_y Crisis, Group or Professional homes although several are under"`study at the moment: I'he Probation Department has 4 requested that any potential applicants or currently licensed foster parents inter- f ested in any of these programs, be referred directly to them for interview. The P Probation Department has further stipulated that persons-interested meet regular foster home licensing req_uirements. before they be considered for the special categories. ,Since all three types of homes are yet quite new to our own county, there is no more °s~ information I can offer you at the present time. As our programs develop, you can be assured that I shall keep the Bay Area Licensing Supervisors Committee apprised of our progress. i Thank you for your interest. We wish you success in your county's new responsibility. • z. Very truly yours, WILLIAM H. LEACH, Director - (Mrs.) Jean M. Phan Social Service Supervisor I Licensing Division t;. JMP:ib 4 Encl. r` r: f• P: NOV 1970 OCt. ! CrR'J(C L)---D h;,TMI, SOCIAL SERVICE DEPARTMENT. LCs-E-C DC5-E•C - i "CRI S IS" MSMR 'r IQ%TS (Fox Pre-Delinquent Hays and Girl s) Each year the N�terey.County Probation Department has approximately 1400 or. more boys cmdgirls referred to their agency for the two .distinct categories of "Beyond Control" or "Rvnawy". Of those referrals, approximately 75% or 1050 boys and girls aro generally lodged in temporary detention at the Juvenile 11all 'by the ._various police agencies. a These pre-delir.qu-mts are usually placed in the dztention facility because a crisis situation has arisen in the family .hcme and because an immediate solution cannot be obtained at the time, temporary detention becares necessary. Ulider Juve- nile Court 1—a the Probation Officer has 48 hours to work out a possible solution between the youth cad parents, etc, and in many cases such action does allow a large percenta e of the detained children to be returned to their ern► hw.as, either an pre- . court probation or merely to wait for a more formal Juvenile Court appearance at a later date. Many of these so-called "solutions", which have been developed) quite rapidly by the Probation Officer and because of tiwz limitations, 1rxlc of proper in- formation and lack of proper parental interest and contact, soon deteriorate and within a matter of d.7. s the child is back in te-,aporary detention. Normally when i child is hold in detention (following a detention hearing by the Court) pending a formal Court appearance, the child remains the full period of twenty-one (21 days or so. It is .fait that by developing two (2) "crisis type" fester hcaas in the County, R the Probation L pram. rt will be better able to reduce costly tc=pzrary detention at the Juvenile }',all y d also develop more concrete and lasting proZi=s for theyysuths, and their parous or relatives. Present Juvenile Hall costs are $8.96 a day �rhich . certainly excc:ds thz proposed daily costs for this spacial type foster home. In addition, if a case Lazst later be presented to the Juvenile Court for formal hear= .ing, many .other• additional costs must be added. It is proposed that the two (2) crisis foster homes be dzveloped to accept from the Juvenile Hall, such boys and girls who do not need the secure type detention offered bY the Juvenile fi_ail facility. Certain boys angirls wau c�s BUY raintaane i the Juvenile Hall because oore difficult and acting out behavior. Police agencies would continuz to deliver their "Beyond Control" cases to the Juvenile Hall and the screening process would then be done by the Probation Department. It is felt that in most situations short term placements would prevail but perhaps . . in certain cases, a more lengthy period would be required to develop an adequate pro- gram between parents and child. We are proposing a daily rate of $5.00 per child with a placement limit of thirty (30) days. Such a home would have a limit of five (5) children and no subsidy would be allowed, that is , a home would only be reimbursed when' used. Such hones would he selected by the Probation Department after a.careful : examination waes re o accept suci children at all times and above all, to examine their abilities to work with the children, their parents .and probation officers during; die crisis. periods. Arrangements will have to made with the local coimty welfare department to cover the .licensing aspects. 1 4- - r' It is felt that there are foster parents available who would be interested in this type of challenging work And who Eeel that they could provide an excellent short-tem plac.;."nt service for the CoLmty of Monterey. In the area of financial i reimbursement, parents would be obligated to reimburse the County of Monterey for eithwr the entire daily rate of $5.00 or a portion of the amount as determined by the D;.par .mts' Finance Officer. A;ain we wish to emphasize that such a progr= slould help to alleviate the growing population figure of pre-delintu4nit cases maintained at the Juvenile Hall And thereby reed the daily placement costs at that facility. In addition, it would allow the Protbation Officer an opportunity to do sc..e early casework in' a gar different .setting than exists at this tizrz. It is felt that rmny disrupted parent-child relatic-aships could be strengthmed through such an approach and most cert.Unly could recce the nurser of such cases that aro mr 'appearing before the Juvenilo "t for a formal hearing. m S IC Before the Board o/Supervisors in taaafd for the County 01 Monterey, State V/ Cali f orniu C3 ' � L1 . Ch:an es in Foster Home 'Rd.te's Approved; Administr.atLve Offioex : C -to Draw Hesolutlon,for Board i Approval '.: The.Admirlstrative'Offt er' files with the Board the report 3 propared .in conneotlon with Foster'Home RAt' s in Monterey County: The .Eipard:reviews, the rf, lim-ndations of: the Administrative Offiaei" and Probation Depeirtmal%t., ; -.: s. Representatives .of the."rastF:r Parents' Associtition are t present and heardori'.the ratter of the proposed rates. They ar3 '. requesti'nG a ;raise :.,in rapes of X15.00 per month to,'cover the cost e 5 . ! . .of living increases. :. i After' dl.ecusainn; .Supervisor Brannan moves that, the follow ins rate, schedule be',{ approved and tris Ad;niristratIve. Officer directed to ''draw".the 'neeesssr!! res'oI Lion for, adaption by the Board: rP *Aei;talar Foster Hamed ,rf.int trrtl 6 yra. of ale $00 per Mo. E; . .7 t'rtru: 12, yrs. of .ape 100 'per.mo. i 13:thru ,18 yrs of age 1.10 per,Mo. t ' 5peeial Foster Fares: for delin,,uents anly)i "Crisis" home: . ! 35.40 ,dally•w.ith••. 30 clay placement lirLt. f "Croup" YlolZes: ! 200 per mo': • "Professional Parents" Hones, 250 pt'r mo. per child `• Asx mer�;ency shelter rare• i No ahsn,.,e in the present schedule of $$.00,per day not to exceed ,a 10 days !« i ar foster home .speciate rate Fetl125.per mo. The _motion ;ls secbnded'bx Supervisor Church, and unanimously carries. - o COUNTY OF MONTEREY. 1 as� sTATE OF CALIFORNIA. I,EN11MET O.McMENAMIN,County Clerk and ex•ofticio Clet;k of Lite Boatd.of Supervisors of the bounty of Mon tcrey.Stale of California,hercb} certify that Rite foregoing is a full, true and correct copy of an orlginat order of said Board of Supervisors duly made shd entered in the rnlnUtea tltereof'at page,. -.-:.. of Diinute 13ook:�.2S._ ..on the 1 3rd •day of. JUne I® ..mnd now remaining of record!n my office t_.._.,.. uune 70 Witness my hand and the sea of cal !Beard of Superviaori thea_.,.3rA._.. day t i £MM ET C.McMENAMIN: t } County Clerk and ex officlo Clerk of the Board +(' j-�,,,/ of Supervisors, Counts of Monterey, state of i j4 J alifornia. p t'tf ��-t•fW I '.•tl: .. Sp �.=.L�-.>�k...r�.m.a .,. }��G,'�''a',.•:G�a"t .. t titlttt eat- 1 ' •. - `+,.;;'.. ,+ .« t ,7;; ...,. - i DEFORE THE HOARD OF SUPERVISO11S OF THE 1 COUNTY OF MUNTERE� STATE 0F. CAt.IFORPJIA — — , RESOLUTION NO. 70-•111- I : .Estublivhing the linx7.mum Monthly .Rotch~tU ) I be paid by the County or. Morrt.uroy fur. tho ). �{ " Suppurt of Wards and Depcndonts of Juvenilo ) ' Court. and for Needy, Dependnnt or Naglocted ) Children In Faster or EJoarding Homes. .) WHEREAS, Section goo of the Welfare and Institutionn Codn I authorized thin Board to ontoblish maximum amounts which thu Juvenile j Court may order' tha, County to pay for support cnd"maintenance of a word f or a dnpend6nt of ,the Juvenile Court, or fora minor person concerning whnm,n p:;tition' has been filed in accordance with provialons of Chop ter 2, Wulrure.end Institutions Coda,:' and I WHEREAS, .thio Board findo:that. a maximum rete should be sat fpr j the care of handy,I dppcnpcn't or negludtad dhildron in foator or 'boardi>tig �'• hones; NOW, THEREFORE, 0E IT` RESOLVED 'that: The following achrdule .bo, and the some is hereby adopted and ' � to buaffective July .l', 1970. ea the maximum monthly rates to be paid by the County, including Stats and Fedarel participation, for the suppart• " � and maintenance of: (1) Wards or'dependents 0r the Juvenile Court of Monterey County " l 'committed to or placed in fo ,ter or boarding homes, by court orders, and of .othor minor persons •concer'ning'whom petitions have been .fi'led InCha i Monterey County Juvenilo Court in' acco'rdonco .with provisions of Chupter .2 LWelfere.and Institutions. Ceda,.end for whom temporary, emergent care j F is directed by court.order, ,end 1 I (2). -Needy, da pen dent .or .ncglacted'c hildran receiving assistance ! through the Aid to Needy Children Program' in any private faster or boards: 'ing home. i. Regular Private so'. S 1 Infant 6raU'6h b years; old S90.00,par' month Ages 7 through 12 100.00 e Agos. 13 and.. obgve 110.00 p f Emergency Shelter Carse j Not to ezcae.d ten daysp per diem $ 8.00 psr'diaa F 1 6p�cial Private,.Faster.Hnroas (Dellnquants Only Crisis Ho"lal Not to exceed 2 homes 85.00 per diem par Child ; Not to .excued 5 childror 'par .hom3 :Not to .azceed 30, days, psr 'chi Id, por dlans I Group Ho,r.e $200.00 per.- month, par child, .Not to er.ceed 4 homes Not to exceed 8-children per home. 1 Professional Parents h"oma $250.00 per month por`Chi1J �.. Not to exceed 2 hopes Not to exceed 2 children per home II a ElE IT. FURTHER RESOLVED THAT if the Chief Probation OfAdcnr, cans- I h carning 'wards of the buvenile Court 'or minor•persona _concarning'whom s ' putition:hoo, 666,1, riled, or' the Public Welruro Director, concerning.-; needy, dcrandent or neghccted children, finds that there 'is need for t e Z " extra Cara and maintunancs in o .regular. private foster orboarding home { ,'.•1 's + .barausa of such ward's, depondentla or needy•child's unusual physical, ". .s, • :' 1 ;'mentol' oi emotional Condit-Lon, a monthly' rate not to exceed $$125 may be paid* .. i ... r • } 'ice �f. BE, IT FURTHER..RESOL�EO thnt if a ward, minor or needy, dependent t vim ,•' or neglected child -requir'dn,speclul .core in a boarding or foster home and ' bI not'contemploted in the rates here-in provided, the Board of Supdrvioora 3 ; aa• 41 `.mny duthori'ze a highor rata upon the recommendation of the Administrativ© Officor' ond the Chief, Probation Officer, in casab�,concarning' words, 4 dependents of the Court or'. minors for whom patitlons have been filed, or.. the Administrative 0 f•icor, and tha 'Public Welters Director: in the sass.':.i of n©edy, doponde'nt r neglected children. j•� BE IT FURTHER ESOL'VEO •thut a foster parent shall: be advised , i 'within ten d'©ys'of filing a request for a special caro rate of the ! :• deeial n of the department head end the Administrative Officer, and that . ' 1 :, such roster parent may appeal .the decision to the Board of Supervisors,. it BE IT FURTHER RESOLVED- that with aoch requaet to the Board for !approvalof a rate above the establigh_d.schedule, the Chief Probation ' { Officer shall includo'.a summary statment of that part or all of the up r kesp costs which will .be paid by responsible relativa(s) or any other source, and further, that in each case where the, county is to bear any { of the cost,, the request shell include a summary report of the deter- ' mine tion of inability of ralativas, or others liable, to pay. ; BE .IT FURTHER- RESOLVED that within ten days after the and of each month the ProSation 'Depa'' nent shall submit a report in,.writing' t to the Board of Supervisors with a copy to the Administrative Officar, c .:,bold report shall be in that form approved by the Administrative Officer, ' which includes the:' um of and kinds of 'spacial footer,hones used 4 . ;.A .. .,.t. during, the months, the.n,umber'of children in.each, the total paid or to ; be paidto each homy and the 'months- tote' l reimbursed or to be reicbursod.Q •� by others. The r.epoit'shall 'also' contain thsraccumuletiva totols paid to :each home through the` fiseal year'and shall include in meaningful form ; the totals, both mont ly and aecurrulntiva, oF'expendituraa and rain- ! ; --burcomentn for plocerf:pnta in such oo licans^_+1 .E:hildran'a institutions, �. 04 -hygiene homes, parbchinl 'achools,.merit81 -hygiene rooter homes and other counties' boyo compoli ranches and schools. The report ehall. nloa •ineludo i• the month's" total numb or' of dmiE;sion to, diachargoo front and ovorago daily frttandonco of both -the Juvenile Hall and the Notividad Ranch, f 8E IT FURTHER RESOLVED that it 'shall be 1ncu::ibent upon the Public . • ,• ,welfare Director and the Ghiaf Proba.tion Officer to promptly maks a } " .vail.able for each childplocad in a foster home the necessary clothing 3' In accordance with that basic list of,clothing as recommended by -the Welfare'' and probation Departments Arid approvad by tha Administrative Officer° � • BE IT 'FUnTHER RESOLVED that the Public Welfare Director or tho Chief Probation Officer 6hall arrange for each chile! placed in' o faetar. 4 home "to be given a ,ied1cal examination, unless' nubatnntial evidence s;. exiu'to that such an axaminatioh in not noadpd." �. 6E I7 FURTHER; VE that the Chiaf Probation Dfricor bo di- D. ractr~d 'to report tni thojAdminibtrgtivo`CMcar all orders' made by t Juvenile Court pursuant;to Section'902 of the walfaro and Institutions .< Code which'exccod ths`maxinum.limits sat by this. rose lut16n avan'though � providir+Q thnt the `avorEign Lia .paid, to the. Probation Officer from' the i minor's estate; enrnirlg , 'or property, or by the minor'e parantn or , guardions; baid officer shall ulna report to .tha Adrninictrotivn Officar . all volunteer: payments •j ' DE I7 FURTHER RESOLVED that Rasalution No. 68-307 pan nod and ' f adapted an the 106 •dey or. September;- 19GO baj_and tha 'aomo is hereby raa ON rSOTION OF Supervisor aurcaa aacondod by Subervinor , u� i opted this otti a �a he foregoing resautansa 1370 by tha following voto: AYES: Su�oawi+�rsa +ddn>as'ah f At�asi3e °�'radc�ra+ott �' Smigla 8a' aaa° t i 1 NOES 'ABSENTS bona. 1 HEREBY CERTIFY THAT THE P^7:0,01r,10 DOCUMENT IS ` r i' • A TRUE C.r�Y 0H FiIOLE IN MY iCE DAT a ���:e.--.•C- 3'. . iMMt' tl::.t. h ti ','•t.:a;Y .i_kt', AN:0 EXAfiiaO CLERIC ,I �.•, t Of THE Ar Of S'ii�RV:SGn:, AtCNTFRF COUNTY,CAUFORHrA' .. I . .•.1 t �r 0lW9Y 1i ♦< h a 1 t+ 1 (Por. Pre-tJel.irxluetit li(I IklinauenC I��j s atid Girls) Most children in regular foster Eerie I)Iacemcnt present no more than moderate behavior Iiroble is. and in SUCK cases, most children progress better when the fzuidly. . . . ' grove is kept small. Group home. placer'ent is desig i d to servo the c}iild Mio cavi- not remain in his Q;m homes but laho will benefit m000 frcm placement in a group � setting within t1%,:.=.znunity.,'. than furan regular fosterh=4 plac.c:-,.ant or institutional .:, placerznt. . Thin type of placementis considered necessary to work with c}iildren. with. � a�oLional and behavioral'problerns which handicap them .in 'thoir enp=ity to.live 'and f-cMCtion ,properly in Ch "i r o,cn coa; mity Many cl�iIdrea! a�.pUced in-,this .'category: . I?c:cazaso of .. 17raunn.•arc Life experiences 'at an early aZe, ' cortcMt;^s within the family unit 3, qw L``stable ezronu ieng I Q. 'r ;rLonality ,whim.•causes ;aim or her, to b�. (�ul sC sitivo 'go . The isle of qr=-) hc;i is reC�gnitod.:j in the sIc"d :oA,'F r•ii.3d wwIfare as .a � "m is ruC.tivo Lad inv:.:it:blc addition to the Various � �.� .a �.-���'j� a t-&-_a 3 c ild S y out.-Of-•h=n PiaC� ...:loT: ZS Crm'sidered. .The State Dapa �.. ;: t GA. vw. ice.: �':O F.:2L .2�1ateS A (I:i2n1t0. i1oCT'u ;ie i%'i mw.Oi Chlldilan IOY 27�F.G.::.­:tz' 1:: El1%:.' n G ^i.. hares,, j for optinitc. Gficc�9 ' re .,m inti;rate pat of the cO:-,:..=. Zy, 'IOCQZI Ctd �G;.3 to schools,:.'::. ChuIChAeS, C?u)S `.M:.3'. ti r ::.miry. It is felt t�xcZt. tlll.�, .:ve7„v^ iG� _c i?G , IJa CC�Munl$y... respos sibil:izy n .3 are of itsf own chili l.n. I'l ci uc .uc wlre'n tr..,y are rc;aa�rsd.i d t o cc.=q/ a;:d .isolated ;ren the ro�;�.a1 f^ily �`.:vi t i es of our.. c...�� carduur�itie,. .`I'ct.; ; ai0 cax,.Ot• be taught tl;eir g7Yiv lues w,d rese:�=5abilities while livi.nf; in:a v=L=—i but mu=st receive it in a grci,�, It is.prv,.�� �li�.� Yc.�Y' (4) grvt , foster ram. ., bo d. a2c�_�4 ,...� in A...itexey . `County for the of pr°a-,d linquent and/or ,d33�-:; we�� �b r •,•..d C. rls 1t}� ; J b+• a• 1110--11 6•d Probation L_:pa:. - sa. �.ildrvn placed in the &mup h=2 ett#,3 ar ::�. ^Z' t:.e juris dictiaa of. Lha C:;,_ 2y Probatien D�paru nt and are p:.:cc:.-3' Ly &.c Court for care and L` .:�.c. ztd 1m- children in theso his �:� x111 ,ro :• i2y' tte•A local pubic. SGhOrJ1S 'and I?4pr;.CY b: a other cc.Twu-,ity activities. rha U-=thl.f. plaCwoOnt for this type of hwa i:�ou3c1 ;;o $ZCO.CO urtcl there would be a Y imit of ci tga fc 2e~ eiiildrert :per h=e,. aZes 12 thr uuoh17. years. �lrrangonents 1�i 11 have to' he r=,d,: wi g tlio local county wclfam. 1:.-�.�.:"nt ,_to .cover the licensing aspects �.d in cortain situatit'ms, Foster parents maay, requira ,additional advice wid help in secur4ig the rnec;essary use j permits. Admission c.iteria wi1,11 be deveIoi>e�: I��_ t,1c I'robatton I�partrr�nt 'to guicic ill the I' selection of cl'�.:;lcizLn .for t:;ese �;rcul� h�N1es ;u1d foster r�arezztss� be willing to accept plac;emzza s regardless of race. , color or roligiorr. Each grcun hu-ne will be con- sidered on an indivicu z-il basis by ti)e: Pro!;.ation Department so that the placema:r�t ,of the Probation wpar unetit 1!Iay 0(' liroreriv i:,c•t. (;4.�rtain haaes will periuips develoll different activity programs .hw1 othcr�, "llich 1;111 thereby provide the Probation ;)c:- partment the opportunity. to "better i,i;ice a c;jld as to his or her specific ncaeus". Ill -,-ia selected ''group"ho;nc }, hath i'ostc r I,.,rel1ts 1 1i 'oe .required ,to be in the home. ,on j a full time basis so that •an,auc�civat �r c�ra;:i .lav ',e carried on. In�spe;cial si tuat i�,►1:�•, j ' . .ter ... . . ........--.�.._ ..«-.-.... ,_..•f.....,.:.._.-. . , . - ,. o:e parent may be allowed to work outside the 11,ome p:�ovi(AC(I that adequate adult paid staff will be available to maintain ars acceptable supervision ratio. Group home ; parents will b required to participate: in an ori-going, training program' so that they may properly hrndle exceptional emotional mid behavior problems. They will be re- quired to meet with the child's natural parents as family visitation will be a neces- sary part of the program, . Individual and group counselling will be a necessary .ingredient of the group hare'program with foster parents and Probation Impartment per- I sonnet providing these services. Group couriselliuzl, se,sions may include the parents of the, children in placem nt :so that overall family change, may be accAo;,-,7lished. The group foster hcnrw progr= can most certainly be used as an alternative to the Mire expansive institutional placement. 'there is no short cut to successful treatrent, th_-rofore placr-m-= in a group hcm-o could be for a relatively' shot period 1 of till or a lengthy period. It appears that these group hcss will pravida an oppor- �.mity far c,'�ila to live in a.'1 open setting and in a therapeutic "-iviro�.:nt .while fon-aing ne a relationships with adults and other children.- In order to achieve the j security so that he or she might reach this goal, the group homa foster parents =st be parental r o<Lals who will provide warmth and unde3rstandLwig, and ;kava the ability to set C=isterlt and realistic limits. • j 1 i _ i ILII - AUG _ NT. v. fjGi n.:1 ,,,A E I 11PROFS:SS1O1`4tu, PAP.;:N7S" FOM3R 10 IES SOCIAL r (For Pre-Delinquent and Deiinquent Boys and Girls) The ideal solution -for all children needing emergency care would be to return them to their own bane, provided adequate care and supervision could be afforded to ahem. When this is not the case, the Probation Ioparvaont holding facilities, such as Juvenile .Ball, must be used pending Court adjudication as well as eirargency shelter hartis for dependent children. After a Court appearance, _a more permanent type of placement must be secured. ' The desir-ble number of children in any foster herr..- depends on the needs of the child to be placed and thereby the kind of care. required of the foster parents. It is necessary to evaluate each placement in the anaas of the. foster parts' ability to work with a child having certain types of behavior, emotional and physical pro- bleris. (_It is frequently accepted as a rule of thumb, that vacancies should out-number placements by 5 to l so that a greater range of selectivity is available.-) Training of all foster parents is necessary to reduce placw"- t failures as fail- ures can be disastrous for ,hoth child and foster parents. Extra efforts have to be made to work with first time foster parents so that they are able to cope with the nt�-rwrous problems of acting out children. Regular foster ham: care meets the needs of most children as they are able to. receive. protection, care and g-uidw;ce in a safe, comfortable horrz setting. On the other hand, there are those pre-delinquent or delinquent boys and girls who present such emotio.aad end behavior problens that a different type of placement mast be ob- tained. Institutional placement outside of the county is or;� avenua but an extremely expensive one wizen rising placement costs are considered. The County of Monterey is presently paying :osier parents approximately $95.00 a month to care for acting out teen- (=e children. No distinction is made in the payant for caza as to the type of child that is in placement. Certainly the monthly $95.00 is not paying for the "super- vision" portion of the placement but mainly covering the physical needs of the child. It. is proposed that two (2) "professional par-ent" homes be da-velopecl at this tine to accept place=nt of pre-delinquent and/or delinquent boys and girls from the Proba- tion 1Jepartirent. Such a placement program could he used as, an alternative to tr�re expensive institutional placement. Children being placed in a hersa of this type would be those who are presenting extreme emotional or behavior problems which call for un- usual abilities on the part of the foster plarents. t,7iat is do<ae with certain children now will. mol-ea great 'difference in Cie next 5 or more years as to whether these young; people are in the main strewn of our society a_s adequate citizens. The proposed monthly rate for dic "professional {parent" hones would be $250.00 as it is felt that by taking difficult and hard to place cases, they will be financially. compensated for their eal�ert isc• in �+.,ri: .;i i ficul t child care matters. If such parents are properly paid for these placeme;its, the r6iabilitstion of a delinquent boy or girl can be accorplisheu at a muc,i; _lower thxi w, it:stit.utional placement and probably in a snorter period of tiir-ic. Foci tar ;paivnti u; t its category will be required to meee ,ll certain criteria set tip by the Probation ik;partment as to education, contiliuing ed- ucation, emotional stability and ability, and other measurable attributes. Above all, sufficient emotional ability to wort; with a difficult acting-out teenager will be one of the prime requisites. Such a hone would have a:- imi't of two (2) children and placement would be made only after a formal appearancein the JLPrenile Court and careful screening by the j Probation Uepartmant. Poster parents will be provided training in various areas so that they may better work with their placements and in fact, professional parents will be required to ac]mowledge in writing, the proposed plan of accepting additional training by staff members of various agencies. Such homes would 'be selected by the •Probatia-i Dapar=,nt after a careful evaluation was made-of the proposed parents and their qualities. Arrangen—,nts will. have to be made with the local county welfare de- partm-pnt to cover the licensing aspects. In addition to deceiving c ualselling service frcm the Probatica D-opartlrent staff, arrange= nts,will be mad; to have a child psy- chiatrist provid-a omsultation on a regular basis. It is hid that such services may be secured through the local ental Health Services. � i E At the prasent time the County of Santa Cruz. (Probaticn Deparu..2 nt) has been granted a sizailar type progr= which allows for 5 such for girls only, with a 2 girl lipid` in each haane. The monthly rate is $250.00, . In view of spiraling irnsti- ? tutic-n costs tit co;=y probation departments are attempting to develop a type of "professional, type, placerwnt between that of the regular foster hc= and a•private It institution. i i R t+ v 14 YOUTH AU1'1101'[TY QUARTERLY COAUMUNITY GROUP HOME ENT, GERLS FOR DELINQUI-11 By EsTELLE J.TURNER Mrs. Turner is a parole agent with the Community Treatment Unit in Stockton One of the more revealing experiences in the davelep- ment of the Stockton ;soup ho;ne, which Ctrs. Turner inod- estly omitted in her account, occured on flay 11, 1938. On that date, the author was married to Janes Turn-ar, also a California I'oath Authority parole agert. :lcti.rg as brides maids were the ,girls about «horn Mrs. Turner v;rites. That incident, perhaps more than the others, illustrated the close relationship that developed 'between 'Mrs. Turner, the girls, and the operators of the group horre. For the past year, the City of Stockton has been the scene of an unusual and promising eperimcnt in group living. A -":cup of teen-age r girls, paroled by the California Youth Authority to the Community Treatment Project, has been placed in a rambling, 12-bedroom, 605- year old home, located in an olc'.er residential district, and operated by a man and his wife who have turned out.to be uniquely qualired for their responsibilities. The girls have been exposed to an environ- ment and program conducive to growth, yet protective enough to give them a feeling of b.-Ion-in--a vital in, in helping them overcome their problems. i The Community Treatment Project in Stockton; being experimental, provides many treatment opportunities to its workers. Sharply reduced caseloads of 12 to 14 give the agents tune for intensive work with wards. There is research time for feedback and discussion of treatmcnt implications with researchers and other staff members from Commu- nity Treatment Project units in Sacramento and.San Francisco. The. I-Level typology. system provides agents with a meaningful measure of classifying youngsters according to their social perceptions and de- velopment. It provides a matching process of determining which agents are suited to deal most effectively with.certain t}pes of young- sters. In the case of female caseloads; however, the number is small and the agents handle a variety of subtypes and levels. Despite the advantages of this kind of_program, the age-old issue which faces the practitioner everywhere and cannot be minimized is how and where to find effective placements for seriously disturbed adolescents who cannot return to their destructive home siblations. - t Y YOUTH AUTHORITY QUARTERLY .15 The Arrival of Caroline In August, 1967, Caroline, a-c 14, of \lexican-Filipino nationality, l found herself facing a period of ten-1porary detention at the Northern _ Reception Center and Clinic in Sacramento following a month's run- away from her family home. She had been released on parole in I lay and had lasted but a short time in placement with her natural mother and stepfather. Her history included 13 runaways, promiscuity, drinlcing, and a strong identikation with a delinquent subculture. She was sullen, angry, and extremely distrustful of adults. The Arrival of Doris At the same time, Doris, 1.5, part Chinese, and her baby, Diane, age S months, were living in a foster home in Stockton. Supervision there was lax and the foster parents were involved in marital difficulties ' which were affecting the girl so profoundly that the agent felt a change of placement was mandatory. Loris was attempting to attend public school and care for her baby, posing insurmountable pressures for her. Her natural home situation could best be described as a "zoo" type of atmosphere, consisting of a highly neurotic, inadequate mother, who was receiving welfare, and several small children, the youngest being the same age as Doris' baby. The.mother was having an affair with a local motorcycle club member who was approximately ten years her junior in age. He and his fellow club members and their motorcycles were constantly parked at the family home. The mother f was frequently very upset, and could be heard throughout the E neighborhood, sbrieki ig and screeching. Ravin; all her life viewed her mother in action, Doris had herself developed a violent temper, Nyith a profane vocabulary to match, to protect her self-destructive a d insecure feelings about herself and about life in general. Oris orally, she was committed to the California Youth Authority for blue sniffing. .. The Group Home Parents The new ;roup home in Stockton was assigned to the care of Roy f and June Nilson, both in their mid-thirties. NIr. `Nilson is a high school graduate, employed as a truck driver. He is soft-spoken and _ gentle, yet possesses the strength of his convictions. Besides driving trucks, he is an .experienced welder and has served as a police officer for the City of Stockton. This is his second marriage, into which he brought his two sons from a previous marriage, ages S and 9_ June is an attractive, effervescent housewife. Jlrs. `Nilson. has three children � from a previous marriage, one of whom is married and out of the € home. The present family group includes the Wilsons and:five children, the youngest, age 4, being born to their union. The `Nilson youngsters ' range in age from 4 through 12. The marriage is solid. Their marital relationship is based on mutual respect,love and trust. ' 16 YOUTH AUTIIOIIITY QUARTVAILY For some time the Wils,)ns had been interested in providing a group home. Particularly since movi:I into a 32-rconl house in StocI:ton which once served as the Stockton I.iiind Center. - Mrs. Wilson happened to kuowa California Youth Authority parolee who wasp laced in a foster home through thc. Community Treatment Project. Thron`h him slab obtaine:l the telephone number of the Project office and called for an interview. The Wilsons had had no experience and little knowledge of delin- quency. They were warm people and seemed to display common sense but, more important to the parole agent, they possessed a real desire.to include youngsters in their family. Their home was quickly established. Caroline arrived around the first of September, followed.three days f later by Doris and her baby. The NVilsons often felt discoura`*,ed and frustrated about being _ foster parents during those first few months. Probably the most difficult things for them to understand were: (1) if their sincerity and interest ' were extended, why were these girls so distrustliil and afraid to form relationships' (2) Why did"they neeci to test even the simplest limits'. (3) Why were these youngsters so unpredictable, acting out even. after they appeared to be adjusting relatively Nvell. As the Wilsons began coning into contact with the parents of these two youngsters and viecvinc- the destructive qualities frolil the homes these girls came from, they began making some sense out of,the girls' behavior, . During this time of the Wilsons' development as foster parents, the agent ana treatment supervisor of the Project spent a great deal of time inter-preting, training, incl aequairlting the Wilsons with the I-Level typology system and, probably most important of all, giving the Wilsons the support they needed. In the early stages Of developing the group home, the `~Vilsons were forced to make some arjustments. They learned they could not expect the wards to respond to requests and limits in the same way their own children•did. The% were forced to become more flexible and tolerant. This was especially true of \ r. Nilsen who finally began to ! " accept limit testing as a process of adjustment. Because of the in- consistent messages the girls had aiways. received in tl:e past, the " Wilsons had to become extremely consistent in following through when mating a promise or taking a stand on an issue. The Wilsons learned to �i'Ork very closely i Ith the Agent and Project staff as they found the , girls prone to play one adu'.t ngairst another. At first, some serious problems arose. Caroline stayed out all night on several occasions, drank when the opportunity arose, and continued a strong affiliation with her delinquent peers. Later, after a brief runaway and during a restriction period from dating, she began to develop a closer rekationship with the Wilsons and the Project. Doris began "warming up" to the t.%ilsons through their mutual attentions to the baby. Mrs. Wilson has helped Doris .in the area of child care and training,showing her the.importance of accepting the responsibilities that face all mcthers. f �' - i YOUTH AUTIIORITY QUARTERLY 17 ' ILII The Arrival of Clara Clara, a 16-year-old Sioux Indian girl, was added to the home later. - She tivas diagnosed as a dependent, immature conformist. Following release from tlhc Northern Reception Center and Clinic, CIara had been placed -,vith her mother. The placement proved unsatisfactory, as the mother, a well-meaning person, lacked the strength to control her children. Five older brothers and sisters have all been in difficulty . with the authorities and several are still either on parole or in 'institu- tions. Clara's father is a chronic alcoholic and spends most of his time in the San Joaquin County Jail. Clara's offenses included runaways, promiscuity, and the continued use of beer and hard liquor. With Clara's placement in the group home, an important issue arose for the Wilsons--Clara's numerous relatives wanted to visit constantly , and would appear on the doorstep of the group home at just about —, the time the family was sitting down to dinner or preparing to tuna in for the night. Visiting rules were set up whicli allowed for visitors R but with controls to permit privacy. The restrictions included fre- quency, length, and specific permissible times. The'Arr val of Shh,IeU Shirley, a-bright 17-year-old Negro youngster who had been raised . by an aunt and uncle in the South, and had been living with another aunt and uncle in Stockton, was badly in need of placement. She had been released from the Clinic to her aunt, who had proceeded to convince 'her that her feelings of worthlessness were well founded.. Shirley was told, for example, that she was responsible for her mother's ' death at childbirth. In actuality her mother had succumbed to a kidney t. ailment three years after Shirley was born. This feeling of guilt rein- (: forced Shirley's neurotic mode of adjustment over the years. Being - extremely sensitive and feeling very .inadequate, she would often fall into a depressive state. ! Her pattern of response from depression would be panic, followed e I by running away, promiscuity, and consumption of barbiturates. f Shirley fit into the group home composition quite well. She readily • ' formed strong relationships with the Wilsons and her attendance as a nurse's aide at the Stockton State Hospital improved. Shirley's dry and alert sense of humor quickly emerged and was encouraged in the group home, while around the Project center one could see Shirley smiling and communicating with otherpeople more easily. Some of her friends and family berated her because she was living in a non- Negro onNeoo home and Shirley asked the agent to place her with. Negroes . with whom she had once lived while on probation. This placement was i very short lived and within a month and a half she was back in the ' t •group `home feeling a greater sense of belonging than before. r 18 YOUTH AUTHORITY QUARTERLY i f The Ar)1vol of Salty i Sally, a blond, blue eyed, 18-year-old, was cxtremely depressed and I unhappy when she arrived at tlic Wilsons'. She too was working as a ` DUrSe'S aide for the Neighborhood Youth Corps at the Stockton State - Hospital. Sally, a perceptive, internally oriented youngster, seemed to j be carrying the weight of the world on her shoulders. Prone to psy- chosomatic iIluess and feeling very guilty about her family situation, she seemed greatly relieved to be placed in the group home. Sally i had been involved in an illicit relatiollshiii with .an adult Negro who ff1 used Sally's money and directed her every move. Sally's unmet de- f' pendency needs here creating a sadistic, masochistic relationship. At f the same time, Sally had been living with her mother and blind step- father, who has a severe heart condition. The family situation v,,as t highly neurotic. Sally lac':-ed the inner strength and, sunnort she SO desperately needed-The agent attempted conjoint family counseling which only seeded to prove that Sally ,vas greatly in need of an immediate change of placement. ' As it turned out, Sally's craving for support enabled her to make the fastest positive ad;usiment to'the group home. Her boy friend sown tired of the house rules and looked elsewhere for a dependent fe- male to control. Aln-lost immediately Sally began looking better and feeling less depressed and guilty. Several factors seemed to facilitate Sally's rapid adjustment: (1) The four girls in the home were not strangers to her.' (2) A group culture had begun to emerge in the home where the youngsters, placed as longi as four months before Sally, had made a relatively positive adjustment to the living situation and could assist the Wilsons.and agent in breaking in a new member. (3) The Wilsons were by now feeling more comfortable about their role as foster parents and now, had a base of experience in dealing with girls. (4) The Wilsons had become more familiar with the I-Level .typology classification systemand could understand differential treatment needs to a fuller extent. (5) The agent bad worked closely -,vith Sally for several months and a close relationship had evolved between the agent and the youngster. - e A Month of Trouble ' Januar, 1968, Nvas a month of conflict and illness for the group home. There were five girls in the group horne and a sixth was soon to arrive. The Wilsons had been proceeding with training and were less de- pendent on the agent and treatment supervisor and more able to make decisions and handle individual crises. Tape recordings of the Wilsons 'The community Treatment Project Herter, approximately ten blocks from the group home, provides a lounge, recreation room, and a school program for its wards. The girls assigned to the Community Treatment Prok_ct in Stockion drop in almost daily to chat with the agent or with other agents, particinate in recreational programs, and often attend a class or two at the Project school. `ally had been attending afternoon school at the Project and t knew all the girls placed in the group.honte relatively well. l ' _ c t t � YOUTH AUTHORITY QUARTETLY 19 had been made in which they expressed their feelings about move- ment in the home, and these were used for Iater discussion and evalu- ation. The Wilsons had becii al,-)Ie, to accept temporary lockup as a continuum in the treatment process and did not regard such set backs as personal failures. The girls ;hero feeling dissatisfied with rules im- posed by adults, and alliances between girls seemed to be emerging. At this time a meeting was held with the VWilsons, the agent, and all the girls. It was unanimously decided that the girls should set their own rules and have some voice in what happened to those who violated them. It was decided that formal weekly group Ineetings would be held with attendance mandatory. House rules were estab- lished by the girls themselves which, much to the agenCs surprise, were stricter, than before. Confrontation began coliccrni rg alliances and gossiping, and it seemed to alleviate much of the difficulty. Sev- eral evenings each geek were set aside for visiting so that parents, relatives, and boy friends could chat informally with the gids and j the Wilsons. Because of the lack of exposure to constructive recreational activities in the community, it was decided to begin a series of group outings. They began with roller skating, motor movies,. bowling, swimining at the Y.M.C.A., and became more extensive as the group became more interested in these activities. Group dinners with a boys' group at the Project were held on a monthly basis..Horseback riding and a sailing trip to San Francisco Bay were tried. Following the arrival of the sixth group member, the Wilsons tool: the girls on a four-day trip to Disney- land in Southern California. \lost of these youngsters had never been { far from the City of Stoclton and they clung to the `ViNons as they i toured Disneyland. The trip was very successful and enjoyed by all. Another trip, to Las Vegas, taken in May, and .several camping trips, s including one to Yosemite -National Park, gave the youngsters new and valuable experiences. A trip to the Capitol in Sacramento and one to ' San Francisco were a part of the Community Treatment Project's school and recreational programs. These trips were planne tivith the hope that exposing youngsters to other areas and expanding their frames of reference with-the outside world would stimulate interest in non-delinquent activities. An active sewing program iias been established for the girls, both in - the group home and in conjunction with the school prograin -at the center. The girls have made a number of outfits and can select their own material from the Iocal stores. An active program a£ cooking has, been started in.the group home where the girls have learned to share cooking responsibilities, plan menus, and buy groceries. This hopefully will help them prepare for domestic duties in the future. The Arrival of ,little Sal "Little Sal," as the girls called her, arrived in January. Her case had been transferred from Sacramento Community Treatment Project be- F 20 YOUTH AUT'llo!,IT] QUARTERLY cause of the geograplhical move of her moilier. Placement with the mother had been very short-lived because the mother had emotional problems which prevented her from un(Icrstandin Saliy's problems. Little Sal was 17 -,vhcn she entered the -roup home. She: -,vas dyi n- of a congenital heart condition and a puhnoaary vasculitr disease. Her life expectancy was estimated at a year and a half at best. The group mem- bers. were aware that Sally -,vas tcrribly ill and made every effort to protect her and give her support. The Vv'ilsous worked closely with Crippled Children Services and their Iocal doctor, a surgeon who was so helpful and so supportive that he bec-erne the family doctor of the group home. He has shared birth control and hygiene inforination -,vith the girls and alle%,iated many of their fears concerning physical ill- nesses. Little Sal participated in as many activities as possible during her stay in the group home and felt somewhat secure and content in this living situation. - Because of Little Sal's frequent stays in local hospitals and several f. crises Ln the lives of some of the other girls in tho home, (a car asci- dent resulting in the death of Clara's boy friend and injuries to Caro- r line's brother), it was felt by the V�ilsons and the a,-ent that someone was needed to assist the girls with their reli-loos training. All the girls in the home said they were Catholics. In February, 196S, a parish priest from Ireland, whose church is located a short distance from the group _ home, began visiting the group.home, at least twice a month to conduct F services and to meet special needs. The Dea�h of Littic Sal Little Sal's condition deteriorated rapidly and by early May it was apparent that death was approaching. At the enol of One month she -,vas taken to a hospital in San Franc sco whin le a team or hoart surgeons worked to save her life, but, in vain. 'Irs. Nilson and the home's other . Sally had spent two nights and two days in the hospital with her. Little Sal's death was a shock to all the girls. The girls helped Little Sal's relatives plan her funeral and acted as honorary pah bearers. This tragedy brought the girls face to facewith a grim realization that death can take a person as young as they and for about a month following Little Sal's death, the group chino very closely together. , f The Arrival of Bernice Shortly before Little Sal's death, Bernice arrived at the -rout) home. She was a tall, lanky, 17-year-old, with a.-,call of defenses built around her that seemed almost impenetrable. Terribly threatened by the feel- ing of being rejected and once again hurt, she would not allow anyone to get near enough to her to begun a relationship. She acted out pro- miscuously almost immediately and even tried to seduce some of the male parole agents and -Ir. Wilson. Nfr. Wilson handled the situation extremely well by politely letting Bernice know that he was happily, married and unavailable. . r Z. YOUTH AU'rrIORITY QUARTERLY 21 Bernice had to be locked tip at the 1\ort11'ern Reception Center and Clinic just a few weeks after Fier placement, but the Wilsons visited her and planned for her return. Bernice was astonished that anyone; would _ want her back and was deeply moved to Iearn that the group members were pulling for her return. Bernice could best be described as a borderline personality, whose mother has been in and out .of State Hospitals for schizophrenia. Bernice herself could easily have been in a ward of the State Mental Ilospital instead of the California Youth Authority. The Wilsons felt Bernice was the most ditUcult case that they had ever dealt with but she has been becoming more open and less defensive since her return. Her• Nvall of defenses seems to have been penetrated to the point that she is able to relate,to people around her with some degree of success. The Arrival of Bailnle Bonnie, 17, is the newest member of the group. She is an assertive r: youngster �vho has been in the middle of a family feud for years. Her mother is an extremely disturbed woman -%vlio has taken out many of E her hostilities on her daughter. Bonnie is explosive and has many unmet needs. She feels considerable guilt and arxietY. Her adjustment to life in the group home is only beginning. tier fellow group members have begun to confront her regarcling her manipulation, grooming practices, and the unrealistic demands which she places. on others. She ran away overnight on one occasion, but turned lierself in the following morning and was given a W'eek's house arrest which she accepted quite well. The Wilsons have begun to observe her living patterns and are working very hard to establish a relationship with her. She is very frightened of her mother, yet is working ona constructive relationship with her father and stepmother. She seems to view the Wilsons and the agent as protecting her from her very disturbed mother. The Wilsons are learning how to handle Bonnie's mother and how to deal effectively t with her father and stepmother. Wlietlicr they will ever be able to form a working relationship with the natural mother is quite doubtful. Roy and June Wilson have come a long way in a year. They began a I career as group home parents with sincerity, honesty and :interest, coupled with a lot of common sense. They added ingredients of train- ing, support from staff, and the experiences of living on a day to day basis with a group of delinquent girls. Hours of agent time including many a phone call in the middle of the night have been necessary to keep the group home going; but the satisfaction of seeing interested, sensitive, effective, and dedicated foster parents develop the ability to meet needs of disturbed youngsters has been most exciting. The `Vil- sonsability to become involved in a youngster's total life, which often ` entails going the "second mile" for a youngster, has been one of the t most significant reasons that the girls have formed meaningful relation- ships with this couple. This often includes staying up all night with a 4. sick girl, providing transportation for a job interview, or inviting a boy J friend to dinner. � 1 t 22 YOVI'll AUTHORITY QUARTERLY { A Promise of Progress Measuring progress of girls living in a group home is extremely dif l- eult. If the goals• are only the reduction of delinquent behavior, how- ever, then progress over a year's time of operation.can clearly be de- fined. o-fined. None of these girls have been arrested by the police since their { placement. There have been no revocations. Four girls have been suspended by the agent; only one girl, Clara, has required a permanent change of placement. Clara was unable to meet the pressures of the group home and often found herself the scapegoat. The main reason f for removing her, however, was that the undermining illilucnce of her delinquent family caused uncontrollable temptations for this very weak, dependent youngster. Her placement now will be in a foster home out Of the Stockton area, which hopefully" will E?cviate some of the under- mining of this deviant family and the delinquent peer group. # Significant changes have been made by the girls in the area of im- proved grooming, pride in keeping their home and rooms clean, select- ing more desirable friends and choosing boy friends who are Nvorking. One girl has had all cf her tattoos removed, arid another girl is sched- uled to have some of hers taken off soon. Bonnie and Doris are planning to return to public school. Sally is due to begin working as a teacher's aide through the Department of Rehabilitation. Shirley is involved in the College Readiness Program at Delta College and Caroline is to begin working for the Neighborhood Youth Corps. Caroline and Ber- nice have steady boy friends whom they hope to many, but they are willing to go along with 'Iona engagements in order to make sure they are doing the right thing. Progress in the area of emotional growth is a long and tedious proc- ess and can only be measured over a long period of time. The goal of the Project and the agent is to prepare these youngsters to cope„more effectively with life and to function as relatively normal healthy adults.. The operation of group homes for girls certainly has implications for the management and treatment of some delinquent girls in lieu of in- stitutions. Treating youngsters in their own community semis far more reasonable and productive than sending them away to isolated institu- tions. The operation of this particular group home seems to indicate that lay people in the community can be trained so that they can be- -come successful in their attempts to provide a home for delinquent girls. tr # r . t i CONTRA. COSTA COUNTY MEMORANDUM DRAFT TO: R. E. Jornlin FROM: Ida Zodrow DATE: February 22, 1971 SUBJECT: Emergency Foster Care Homes The attached document outlines the major dimensions and policies of a program providing family foster care for preschool children requiring emergency shelter care. This pro- gram augments our present policy providing dependent and neglected children shelter care at either the County Hospital or Edgar Children's Home. Procedural matters are not encompassed in this paper. Summar i"l Y: (. providesemergency foster home care for preschool children U requiring shelter as part of our program of protective services (court cases (6001s) or voluntary placements) 2. , development of a subsidized foster home program beginning with authorization for (6) six of these homes 3. development of (2) two professional foster homes to care for exceptional children requiring special care (e. g. physically or emotionally handicapped children) 4. attendant cost for the program is approximately $60,000 to the County for the first year operation For the implementation of the program for emergency foster care, the following items must be secured from the Board of Supervisors. ESTIMATED COSTS DELINEATED IN APPENDIX. I . Approval of the policy to shelter children requiring emergency care in licensed foster homes in lieu of the Edgar Children's Home or the County Hospital . Authorization of payment at an average rate of $5 per child per day to foster parents accepting children for emergency shelter care. The payment commences when the child is placed in the home and terminate, when the child leaves the home. The first 14 days of Shelter care reimbursable at the standard service rate. 2. Approval of the policy to develop initially 6 sub sidized homes for emergency shelter care in the County. Authorization to pav $40/bed/month with a maximum of $200/month/home for ,subsidation of (6) six emer gency care foster homes. Subs i dat i on reimbursable GEN. 9 at the standard sorvice rate. I 1 Jori-i i i r1 -2- ebruary .22, 1971 3. Approval of the policy to devolop initially (2) two C4 "professional " foster homes for the care of atypical youngsteL5 requiring out of home care. Authorization of a board rate of $250/child/month for children residing in these (2) two homes. .4. Authorization of budgetary expenditures for program operations as delineated. Items include: outpatient medical .services, staff salaries, etc.. IZ:bll -Tr- SOCIAL'SEF:v1C DEFAiTRtEi•1T CONTRA COSTA COUNTY MVAOF.ANDUM TO:. R. E. JornIin, Director FROM: I d'a Zodrow DATE: Mlay 7, 1971 SUBJECT: Extended use of family foster homes for emergency shelter and intermediate care of children Attached is our proposal for the Emergency Foster Care Plan. The final draft is the result of excellent staff assistance, especially from Mr.. Steve Scarich and Mr. Earl Den Beste. The program seeks to 1 ) develop foster homes for use as emergency shelter care facilities for children requiring such care for their protection and 2) develop a system.of intermediate care foster homes for atypical children needing specialized long term `care. Board approval is sought for the "package"., Items essential for the implementa- tion of the program include: 1 ) amendment of Board Resolution 70/585 �' In the Matter of Fixing Rates for Foster Care". The new categories of foster homes and their board and care rates should be added. (Refer to attachment) . 2) authorization for the Director to authorize County pay , for the board and care of dependents when this care is necessary for the children's protection. This would enable the Department to place and pay ,for ineligible children before Juvenile Court action. Specifically, the Department could authorize pay to foster parents for children prior to the' Detention Hearing. I would we-I come .the opportunity to discuss this matter at your convenience. IZ:bll cc: R. Wymer Al Croutch E. Den Beste S. Scarich . GEN. 9 x , . In the Board of Superyisors of Contra Costa County, State of California - - November..2 19:• 71 .In the Matter of Request -of Probation Comnittee., 1971 Contra Costa County Grand': Jury. This Board- having:received a 'lette.r'Trom Mr. Alyiner B. .. Hussey, Chairman of. the Pro.bat-ion Committee, of the. 1971 Contra Costa County Grand -jury.,- requesting-that Board members who serve on the board committee dealing with .probationary matters . meet with said- Probation Committee and other ihte_ rested members of the Grand Jury .on November_ 10, - 1971' at 1: 30 p.m. , in Room 108 of the :Administration- Building; :. and The i Board members, having. discussed said request . and being in. complete agreement. as to. compliance with same; and It. be.i"ng the :concensus of the. Board- that its Chairman and Vice Chairman should attend said::meeting _rather than members of any particular Board committee; NOW; THEREFORE, on "motion, of. Supervisor'W. N: `Boggess, seconded..by 'Supervisor A. M. Dias, IT IS BY THE BOARD ORDERED that - the -Chairman and-'Vice Chairman are REQUESTED to: .attend the aforementioned meeting as representatives .of the full Board. . The foregoing -order-'was -passed by ,the following vote AYES:- Supervisors A. M. Dias, J. E. Moriarty, W. N: Boggess , J... P. Kenny: NOES None.. ABSENT „Supervisor E . A. ,-Linscheid. hereby .certify that the foregoing, is a true.and correct copy of an order entered on the minutes of said. Board'{'of' Supervisors on the:date aforesaid. cc : Mr' A B Hussey Witness my hand and the Seal of the Board of Supervisor J. P. Kenny Supervisors Sup-ervisor affixed- this 2nd. day of November , 19 71 E-.'. A . •Lins c he ids W. T. PAASCH,.Clerk County Administrator --By. Deputy Clerk Elsie Pigo t H 24 4/71 IOM . L ' ro CONTRA COSTA COUNTY CLERK' S OFFICE Inter - Office Memo Date: November 2, 1971 To: County Administrator From: Clerk of the Board Subject: The ward .today. adopted. an order directing the Chairman and. Vice Chairman to meet with the Probation Committee of the x.971 Grad Jury and,$ following adoption of aforesaid order, Supervisor Dias suggested that you prepare appropriate comments concerning past discussions between Board members. Superior Court jUdgess, and County Probation Officer. We are attaching copies of documents in respect to this matter. ep attachment cca Supervisor Dias A, CONTRA COSTA COUNTY CLERKS OFF I CE Inter - 0 f f I c e Memo Date:October 28, 1971 To: County Governr¢ent Operations Committee (Supervisors A. Me%,Dias and W. N. .Bogge s s')�' From:C lerk of the Board Subject: The attached letter dated' October 20, 1971 from ;the'Chairman; PrOdtion Committee, Contra Costa County 'Grand JI�v was listed a's 'an "information" item on the october 26, 1971Fcalond.ar. tie are calling this matter to your attention as you may wish to make arrangements to attend the meeting scheduled for. November 14, 1971. ®p attachment 3 Al GRAND JURY CONTRA COSTA COUNTY P.O. Box 1110 MARTINEZ, CALIFORNIA 94553 - ,��.-dd.,:''���. October 20,. 1971i`�1� � ��. W. T.. PAASCH CLERK SOAFJO,OF SUPERVISORS N A iT CO. lay y Depn James P Kenny, -Chairman Board of ' Supervisors Contra Costa County Administration Building Martinez, California Dear. Sir.: •The._-Probation Committee and interested members of the' .1971 Grand Jury are most desirous of .meeting with 'Board members who serve 'on the,.boa.rd . c,ommittee dealing with probationary• matters We• =have .set .'aside Wednesday, :November- l0, 1971 at . T:'30 p.m ,,Jin Room .108of ;the Administration Building for We ;would . f appreciate: ,hearing' rom you no -later than November 3rd. Thank you for your: consideration in -this matter y Very truly yours, ALYM& B. HUSSEY Chairman, .Probation Committee ABH:ea CONTRA COSTA COUNTY .CLERK' S OFFICE Inter - Office Memo Date:. December 289 1971 To: Administration and Finance Committee (Supervisors Eo A. Linscheid and Jm He Moriarty) From: Clerk of the Board Subject: The Board today reI I po• to ;fou and the County Ad�niraistrat®r repmr`t ok. the Thies_.and! Assessihents Committee of the 1971 County Granad lk • � . Inthe. Board of Supervisors of "Contra.: Costa County, Stdte: :of California =December:`28 ' 19' 71 In the Matter'of" Report of Taxes' and Assessments Committee of the 1971, :Contra .:.' Costa County Grand Jury. 'This '. Board-:having received a copy of a report of .the Taxes ` and :Assessments. Committee of the 1971 Contra Costa_ .County Grand Jury,' On motion of Supervisor W— N. seconded by Super- visor E.._ A. -Linscheid, :IT IS BY THE BOARD ORDERED that receipt of said. report, is ACKNOWLEDGED, and same is REFEftRED' to the Administration -and Finance Committee . (Su:per.visors Linscheid and J.• E: Moriarty.) ,and the County :Administrator: :. : Th6 'foregoing: order .was :.passed by the- following vote :. AYES.: Supervisors ,A. M. Dias, W *N: Boggess , E: :A. , Linscheid., J. P. Kenny.. NOES: None . ' ABSENT:-- - Supervisor J. E:, Moriar-ty, hereby'certify that-'the.,foregoing is a true and correct copyof.an order entered on the minutes of said Board'of Supe'ryisors on the-date aforesaid. cc.• Superior Court Witness my hand•and the Seal of the-Board of +Secretary (2) Supervisors -Bo ard,'Committee affixed . this 28th , day ;of December , 1971 Administrator. W. T: PAASCH,• Clerk r. . t By .� ; Deputy Clerk oan R: Schoettler Rel e -Date: 12-20-710 L RECEIVED TAXES AND A.SSESSIVIENTS CON 4ITTE Forrest J. Simoni, Chairman 1971 -Leo Armstrong , -r, ASCH Richard Kerbavaz cue BOA F SUPERVIS RS A COSTA- BY Putt The property tax is one of the most regressive of all forms of taxation, and unrelated to the ability to pay. Govern- mental agencies ' insatiable hunger for the tax dollar no longer can be satisfied from the property tax. At the same-/time voters, for the lack of understanding of complicated ballot proposals , are adopting Constitutional Provisions and the Legislature, by legis- lative action, expanding the. "preferential" property tax treatment of special interests . Property taxes have reached. the point where many of the retired, the aged, and the poor are driven from their homes in ever increasing numbers. The same principle applies to the small business- man. . Sadly, but true, they cannot look to their local legislative body (Board of Supervisors) for any relief because this requires action at the State Government level. Annually, the State Legislators and the Governor speak well of "tax reform", "tax relief" and of other benefits for the home owners. The frightful tax load of today . inclines the taxpayer to be more impressed by legislative action in his behalf than all of the rhetoric his experience has taught him to distrust . If any property tax legislation is enacted, it usually results in a shift of the tax load from special interests to the homeowner. Un- fortunately the home owners are not aided by high priced lobbyists as are special interests . The net. result is in most cases that the special interests obtained preferential tax treatment at the expense of the homeowners. The hour is late and the responsible government officials should act at once to relieve the home owner of the oppressive property tax load. Some immediate legislative action is indicated by the fact that dissatisfaction and rebellion is obviously uppermost in the minds of the taxpayers. 1970 Grand Jury Recommendations The four recommendations made by the 1970 Grand Jury were reviewed with the County Assessor to ascertain whether they had been implemented, Our findings are as follows : RECOMMENDATION 1 The automation of the Secured Roll Maintenance System has been completed.. A reorganization study of the Appraisal Division and the Clerical Staff is now under way. When this study is com- pleted, the Computer Assisted Appraisal Program will be implemented. RECOMMENDATION 2 To provide additional office space the county has pur- chased the Martinez office of Western Title and Guaranty Company. The office will be modernized and staff moved in from rented quarters , . hopefully, in 1972 . RECOMMENDATION3 The Audits Division is adequately staffed with Auditor- Appraisers . However, limited additional clerical . help should be provided to relieve Auditor-Appraisers of routine clerical work. RECOMMENDATION 4 Moving of the lien date from March lst to January lst and the use of "average inventory" rather than the value on the lien Taxes and Assessments Committee date require the implementation of state legislation. We ask that the Board of Supervisors continue to urge our legislators to in- troduce and support legislation necessary to change the lien date. Properties Receiving "Preferential" Tax Treatment Certain properties are granted"preferential" tax treat- ment under Constitutional Provisions voted by the people, and other properties by the State Legislature: See Appendix III •for partial lista The list may not be complete, but we feel we have mentioned the major ones. This- practice results in a shift of the tax burden and it generally falls on those least able to pay -- the home owners. Annually the legislature is requested by special interests to give "preferential" tax treatment to certain groups, and the list of properties in this class is growing at a steady rate . Reduction of Utility Assessments by State Board of Equalization The assessment of utility properties for tax purposes is extremely complicated. Therefore, the average taxpayer does not readily understand the process and as a result is most confused. To further complicate matters, the State Board of Equalization uses one formula to assess utilities and County Assessors employ another to arrive at market value of locally assessed properties. The use of two methods of evaluation add to the confusion and lead to inequities between board . assessed and locally assessed properties . The Committee felt it did not have the time nor the , technical skills and experience to make a thorough study of the appraisal and assessment procedures followed by the State Board of Taxes and Assessments Committee Equalization in assessing utility properties . Inasmuch as this is an involved evaluation and equalization process that is adversely affecting the County tax base, we thought it was best to quote directly from the language of the County Assessor, Mr. Fred Wanaka. "It is extremely difficult to estimate the tax loss attributable to the reduction in utility assessment ratios because of changing methods of allocating the value of that portion of the whole state unit assign- able to Contra Costa County, and determining what assessment ratio the State Board of Equalization has used in prior years. However, changes in allocating value between the counties of California appear to be relatively minor when compared to reductions in utility assessment ratios. "Part of the answer for the reduction may be found in the attached assessed value tabulation. It shows comparative values and growth rate in percentages for the local roll and utility roll for the decade from 1962 through 1971. (Appendix I) •This presents a graphic display of the effects of the State Board of Equalization's actions in reducing the assessment ratio s it employs and, during at least part of the period, -changing the allocation ratio between several counties on a major utility installation in Contra Costa County. Since utility growth is dependent upon goods and services it must furnish, a growing state, it would seem that there should be some correlation in growth factors Taxes and Assessments Committee . -of local and utility property. "It has been only in recent years that the State ,.-Board -of Equalization has .announced publicly the assess- meet ratio .used in its assessments . Prior to -the time it started reducing its assessment ratio, the Board generally conceded that it was using a ratio of 507.. The announced downward trend in the Board' s ratio began in 1965 and has reached a level of 297. for the 1971"72 tax year, down from 31% for 1970-71. itis -possible, however, that the downward trend began prior- to this time, but is not apparent, on the attached chart because of substantial amounts -of utility construction during that period. "we have used two methods to estimate the tax loss to Contra Costa County because of the change to the policies of assessing utilities . Admittedly more accurate estimates could be rade, but it would require considerable e time and effort beyond that which is available from this department with no assurance that the time and effort would have any effect upon present policies of the State Board of Equalization. s "Referring to Appendix 1, you will note that the assessed value of all public uti—.hies fer the 1971-72 tax year amounted to $171,329,540, Had the .State Board of Equalization not reduced the roti@ from 507. to 2970, the assessed value :for the current year would. have .. totaled $295095, 758, a lass of. $124,066 ,216 in assessed S Taxes and Assessments committee value. Using a $12 . 56. composite tax rate* for the 1970 year, this would amount to $15 ,582 ,077 loss in --tax monies. "Since 1962 , the assessment roll prepared by the Contra Costa County Assessor has increased 112. 8%, while the utility assessment roll prepared by the State Board of Equalization has decreased 7 . 08%. Had the utility roll grown at the same rate as the local .roll, the assessed value of utilities would be $220,496,405 more than it is today. Additional tax monies available on this basis, would amount to $27 , 694,348. "Previously, the Board of Supervisors of Contra Costa' County directed the Assessor to review the appraisal and assessment procedures employed by the State Board of Equalization with respect to utilities. I have included copies of these reports to give the Taxes and Assessment Committee further insight into the problem. " (See Appendix II) From the above certain conclusions may be drawn with re- ference to utility assessments . The reduction by the State Board of Equalization of the f' assessment ratio for utilities is having a significant effect on the county property tax base. The shift in the tax load from State Board of Equalization assessed properties to locally assessed properties appears to be quite substantial, and seems to have fallen most heavily on the home owner. Although utilities have received a huge tax "wind fall" -Taxes and Assessments Committee it has not reflected in lower utility rates for the consumer. Instead, recent experience tells us. that rates have been sub- stantially increased. The present formula used by the State Board of Equaliza- . tion in arriving at market. value differs from the method used by County Assessors in evaluating locally assessed properties. This difference in valuation may result in lower assessments and in a tax .break for utilities. Changing methods of the State .Board' of Equalization unitary ratio in allocating value among the counties could result in the loss of additional assessed value to Contra Costa County. *In order to simplify the calculation of the tax which would be derived from this amount , we resort to the use of a county wide composite or average. 1970 tax rate of $12 .56/$100 assessed value. This rate is computed by dividing the total net taxable value in the County into the total property tax levies . Taxes and Assessments Committee RECOMMENDATIONS 1. We concur with past Grand Juries and recommend the . State Legislature change the lien date from March 1 to January 1, and that the average inventory value be used for taxing purposes . 2. Many Constitutional Provisions voted by the people, have granted preferential tax treatment. Steps should be taken to better inform the voters of all aspects involved and stress how it may affect individual home owners for any future Constitutional Amendments. Revenue and Taxation Code provisions, passed by the . Legislature, granting preferential tax treatment of certain properties should be reviewed to determine the tax effect on home owners . If the study reveals a shift of the tax burden to home owners has occurred, the State Legislature and the Governor should take immediate steps to repeal these Revenue and Taxation Code provisions . 3 . We recommend the method of establishing market value of utility properties by the State Board of Equalization be more uniform with the formula used by County Assessors . We further recommend that the present utility ratio of 29% be maintained until valuation uniformity mentioned above is achieved. Taxes and Assessments Committee J 4' •ti 1 O r 1 M n rA ON O r1 N r1 N 1 1 1 1 t t • U GiPto M .n o % o t.t 1 N -.1 J O) N - L U `vy' r-1 ri p � r-1 n O r (7 O\ NO M co r/ r0I M % X) u) lT ..7 M C- w p M .. \O \ .4 t!\ M 14 y t- M N rl O 10 r-t -:I CO a) V\ r\ No N Q u) .0 . rn t11 1 to 00 w N t w w M to V\ ON 0 14 41 �k F ii-n1 to 1 'u O r- v\ t-1 0 E+ �1 CD S• 0 o o; \n =t 10 v\ v\ Ac 44 N �y M N O N 1 rw `n .O M O\ M O O O V\ () to O\ C N -� vl Q +) L eC N M wQ (� \10 !\ M N Oj co fes- M N0 N U 1\ co to O . V ' N N. O 0 O O\ O\ •rl '4 r 1 r 1 r-r ri N O\ r 1 ; r1 7 [. t, / o pp..� ) s�yyrr O h o o \r ' k i 4 . O cc] rl coo ; N oo 10 `O 1.4 �� v) V\ �o r'1 r M C tr) r-1 M �( N O N w o. '-1 v o 0 co% cl �( to r- M N M O O a0 N V\ r-1 -,A N M N CU in V W 011 Cl) m 7 N N O\ M 1 N to O M M Q r-1 � t1 ti r o ,-t co r r+i to o\ ao CN r` (X) 10 °` ac) rN-1 rOi � a) co rl +J 0" N V V .N E+ (�. 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O O � O IP, O O COQ\ \O H 1O l� p,t w w � 0 1r- CC) 'N 01%�- .D 10 1N10 r-4l o u\. �O M c)� C- --I ti o\ to \ r+ r'- M o M �\ ri 0% � c w w E+U H a, UN O N V\ to 000 0 a CO N co O\ O r- N M J V\ \O -rt ri rt r4 t-/ H rt to H I O co 0 13-, �{� -* \O N .[i rf oo \O ffO\ .p 42 a0 r-I N - • O V ' * A� to O Lr\ O U O\ O\` t• t-- co (Ml w w O O O (' O\ w, w T1 11 '. N cu N O\ \O 111 O N \A 41 rte- ' O u\ v.) '1 M 1 O\ O W O . t+•.l ��l t� to Uw. r1 w _l a r1 PCh - w w w w r)rt r♦ N (v O r/ to ()% rl Q . O\ \(\ 'J N V\ 1)) tU Q) aJ to U N w O\ O rl N t•\ _:t U\ \O r1 r4 rt rt rl r-t - rf - h d to 0 H11, 1 p1I N <r\ lt\ r- u7 - to 0 rt H)V - SI_ - i OPPICn OP THE COUNTY ASSESSOR • ef1 d I X . • Inter-Office Memo TO: E. P. Wanaka DATA: October 28, 1963 F101: A. W. Glendinning A. J. Larorio SUBJECT: Inquiry Report of State Assessed Utility Assessment Roll • . In compliance with Resolution No. 2157 of the Board of Supervisors , A. 11. Glendinning and A. J. Larorio of the Assessor 's Dctiartment have again reviewed the State Board of Equalization's practices of assessment for the public utility roll . L. J. Eastman, Chief of the Valuation Division, State Board of Equalization , pro- vided the. necessary assistance . The results of the invest ication . are indicated as follows : Consistent with the apparent State 1'.oard policy of "egrnalizinr" the utility roll , it appears that the Board. is continuing its practice of gradually reducing the assessment ratio of State assessed properties. It is indicated that this policy may contimie indefinitely; or until the Board feels that the proper decree of equalization has -been achieved.. It may be further assumed that future utility growth will tend to offset the declining assessment ratio, and that the Board policy may be to reflect a slight pain over the previous year's assessment roll and to adiust the assessment ratio .to market value accordingly. It was stated that , with normal county growth , the Board roll would in all probability level off at approximately a ' one or two. percent Fain per year.. "Equalization" of the Board's market value ratios for taxable . tanrible utility property is still in its infancy. A reversal of . ) the trend can only occur through a change of Boa.rdpol�.cy, a change in the Board' s methods of market value evaluations, or a fantastic over-nieht growth of the public utilities. In the actual inquiry, investigation again was directed to the ' Pacific Gas and Electric Co. , the lar^est taxpayer. in our county. The survey revealed the continuation o.f the . Board policy to "equalize and reduce the assessment ratio" of utilities. In its 1963 appeal to the State Board of Equalization, Pacific` Gas and 'rlectric affirmed that "several years ago• we were quite hopeful that you were embarking: ' upon a proj*ram of gradual equalization and , indeed, our studies indicate that you were doing so. A similarlstudv of our assessment I for the taxable year 1962-63 indicated that.1 the Board wad' ncain ;.�. beginning to worts toward gradual equalizutibn. We strongly urge .� that the Board continue in this program so that_equalization can.. i gradually be achieved." ./o E. P. Wanaka -2- October 2R, 1963 Board valuations arc segregated between two classes of prop- erty , unitary and noniinitarv. Unitary property consists of the integral operat.inr network of the utility; i .e. , the unit of Produc- tion. This property is valued as a whole , and the assessment is ; then allocated to the various counties in proportion to their share ' of the unit . Nonunitary property is nonoperative or not essential to the operation of the tit ility. It consists of pipelines, leased facilities, vacant land, etc. Nonunitary assessments are made • : . .. individually to the county where the property is situated, and no allocation is necessary. A few years aro, it was established that the Board was assess- ing all property at a ratio of 50% of its opinion of market value . Members of the Board have recently expressed the use of approximately a 45°0 assessment ratio, and, we arc led to believe that unitary • . property may currently be •assessed within a range of 42 - 45% of value . The assessment ratio of nonunitary properties has been reduced from a 307c ratio in 1961 to a current minimum of 25%. IThe local assessment roll has shown a consistent annual. growth. ; of 7 - 9%_over recent years. Conversely, the annual growth of the rgard roll has, diminished from P% in 1960 to a subsequent low of less than 1%. It is apparent that the "gradual equalization" from approximately a 4576 assessment ratio may c6ntinue for quite some time. "rquali.zation" of the Boa rd" roll has hlad a disturbing effect on Contra Costa. County' s utility assessment.. Normal economic growth of t he largest state of the Union presuproses similar economic growth of service industries within the State. In the case of Pacific Cas' and Electric, it has been piiblically stated that significant growth had occurred in the past year. However , the policy of the Board has ;) not made this evident in the assessment roll. Procedurally, the ,I Board resolves the market value of a utility , determines the ratio, .and submits the assessed .vnlne to the Valuation Division. for alloca- ti.on t.o the. proper taxincr ju.risdict.ions. The allocation ratio 'is determined by dividing the unitary property assessed value by the replacement cost less depreciation value of the unitary system. In spite of the economic groi%,th of the Pacific as and Electric , the allocation ratio decreased from 30.7857. in 1962 to 30 .121% in 1963 , an over-all decrease of 2.2°0. Using the 1962 assessed value of the. Pittsburg Steam Plant , the 2.26 decrease in the allocation ratio would have res+.�lted in a less of over one million dollars of assessed � . r. ! value in that particular code area. New construction reduced this . ' loss to .W0,000. "Equalization and the reduction of the assess- ment ratio" will continue to have far-reachinc, effects upon the i State utility assessment roll. A compensat:.inp effect in -an individual county may be the degree of new construction and, consequently,, t he degree of allocation which that particular county may receive. L. P. lanaka -3- Octohcr. 28, 1963 . i The Contra Costa (Antioch) Steam Plant continues tobe an ! exception. Followinr the recommendation of the Joint Interim Committee on Arse;sment practices, May 1959 , the hoard has been , attempting to adjust the "overallocation" of value at the Antioch , Plant . Although other unitary property assessments were i'(-inr, allocated at 30.P76 of replacement cost less depreciation in 1962, the Antioch Plant was still allocated on a 367, basis . Expans ion � of the Antioch Plant permitted the State }bard VaDiation I)ivi.nion to adjust this allocation ratio as painlessly as possible. The current allocationratio of the Antioch Plant was reduced from 36-!0 to 32.4370 of its replacement cost less depreciation. Conse- quently, the 1963 assessed value of S33,P27,000 reflected little i chance over the $22,F26,740 assessed in .1962, and Contra Costa i County received little or no assesse(S value increment on the 19- i million dollars invested in Antioch durini► 1962. It is forecast that similar adjustments will be made to the Antioch Plant alloca- tion ratio in the future. i In summary, it has been stated factually that the Board is "equalizing and reducing; the assessment ratio." This policy should result in a declining rate of growth of the State utility roll. An optimistic forecast is for one or two percent annual ' increase in Contra Costa County' s utility assessment. Even this 1 prediction is continf;ent upon substantial utility expansion within the County. { .' The Contra Costa (Antioch) Steam Plant` assessment is being I' adjusted to conform with other unitary property allocation ratios . Future expansion will be offset by a decl-ininl• allocation ratio, and no appreciable increase in assessed val'uc can be anticipated within the immediate future. . • I S AJL:imY, - , ._� L OPPICB OP THE LOOM ASSESSOR i Inter-Of Tice Memo TO: J. P. Mcn ', ien DATA s Octobcr 28, 1963 County A(D1 strator PROM: B. P. Iva aR County A sc. "r Su1.1JJ:CT: ReviProcedures in State Assessed Properties i Attached is a copy of a report made by A. 11. Glendinninry and A. J. Lagorio concerning their current investigation of the assess- ment of utility properties. f It would appear that the appraisal and assessment procedures ' followed by the State Board of Equalization are consistent with those of last year and also consistent with their announced pro- cedures of r.radually reducing utility assessments. This is further, evidenced by the gradual reduction in the ratio of State assessed property to the entire ;assessment roll . ' 1955 26.227. 1956 22.66 ; j 1957 21 . 33 i 1958 21.19 ! r 1959 20.95 i 1960 20.08 1961 19.99 1962 18.90 . 1963 17.,Q5 • In summation, we may conclude that there will be : j 1. A continued shift in the tax burden from State assessed properties to common ' property owners caused by a reduction in i . ' E assessed values of existing facilities of the various utilities. 2. A ,reduction in the allocation of the total state-wide assessment of given utilities i to Contra Costa County will further reduce `• assessed 'values in Contra -Costa County., i • 3. Continued emphasis on income which because of statutory ceilings , is the lowest indi Gator of value. , i i � J. P. Nlc• Brien •] -2� October 28 , 1963 ' The heart of the controversy continues to center around the question of whether or not a monopolistic industry which is subject j to an additional governmental regulation should, because of this , enjoy a different treatment of the valuation concepts than private ' industry. 1 I. 3/14/67 ' An Outline of the Procedures Followed by the i California State Board of Equalization ! • I in the ' Allocation of tho. Unitary Assossmonts of State Assossees to Taxing Jurisdictions Section 11�1 of Article YJII of the Constitution nayn, in effect, that the Board of Equalization shall value and assess the properties of utilities and railroads, and then further, +' "all property so assessed by the Board shall be subject to taxa- tion to the same extent and in the same manner as other property". ' The Constitution tells the Board what to do, but not how to do it. The values of public utility and railroad properties. are determined on a "unit" basis, and it is repugnant to ' the :"Unit value" theory �to attempt to assign portions of the unit (. value to the component parts of the unit. However, it has to be j done if the Board is to comply with the requirements of the I Constitutional provisions, that is, the unit value has to be I .. allocated to the situs of the component parts so that the � . ' properties may be "subject to taxation to the same extent and t same manner as other property". While an allocation procedure has to be more or less arbitrary, it is almost axiomatic that the allocation of the unit value to each of the component parts should be, as nearly as ' possible, in proportion to the amount that the part contributes to the earnings of the company, as earnings are,- the very essence of value. In light of this, the Board feels that the unitary assessed value should be allocated in proportion to the repro- duction cost new less depreciation (RCNLD) of each component part of the property. Others feel that the allocation should be in �., proportion to the historical cost less depreciation (HCLD) rather '. than RULD. The reason that the Board feels that allocation on ! the basis of RULD is more valid can be explained best by an example. Suppose that two identical hydroelectric power plants were constructed by a power company, one 'just before World War IV and one immediately after, when the average price levels were s almost twice as high. Each plant is generating the same amount of power and will continue to do so for practically the same 1 ,. , number of years in the future. Each plant is going to -produce . i practically the same total amount of a saleable product between , •) the present time and its retirement date. That is, each plant' s i production, and hence its contribution to the company' s total i. earnings, is practically the same. however, if the unitary value s was allocated in proportion to IICLD, the pre-war .power plant would i have only about one-half the "allocated assessment" that the post �I , .war plant would have. if the allocatlon. was made upon a basis of `RCNLD, the "allocated Assessments". would be. practically the sanef. ' i . which is patently more equitable. Those that support allocation in proportion to 11CLD1 do so mainly on the basi3 that, in California; 11CL D is the amount upon whish t1in utility 13 allowed to earn. I(CLD, or rnto � bare, is an amount thnt tho rel-u_latory commission considers only f• in tho aggregnto in -rnto dotormination. The rntos dotorminod 'aro supposed to insure an adequate return on tiro amount originnlly invested that still remains in servico and to Insure a return of ' the original investment by the time the property has to be re'- placed, that is, to preserve the integrity of the investment.' , Other bases of allocation have been suggested, most �I of which involve physical units instead of dollar figures. For ' example, for electric companies the unitary value would be ' allocated to situs in proportion to conductor-miles, or for a railroad, in proportion to track miles. While some states do I allocate value .in this manner, there is not much_ to recommend � the method except ease of application. The actual mechanics of allocation of the unitary value under the Board' s present procedure are somewhat labor- ious, but not too complicated. The assessees are required to file property statements each year in which .they list all their ' property in each county bar location segregated to tax code areas. Cost is associated with each item in the listing, or can be determined readily from associated reports. Tax code areas are geographical•areas in which a common combination of tax rates is applicable to a given class of property (that is'. land, improve- ments or personal property) . Prior to the time of the filing of the property state- ment by the assessees, the Valuation Division of the Board has " made reproduction cost new less depreciation studies from which j the RULD of each item listed in the property statement can be determined. The basic information for these studies obtained ' from the companies ' accounting records, is .dollar-age information . --a segregation of the dollars invested in tangible assets by year of investment. This information results in a determination { of remaining dollars invested in the property by year of place- wont for each reported item. By use of "cost factors" the Division trends those costs up to present price levels, arriving at an estimate of what it would cost to reproduce the items of property today. Based on the date the property was put in service and on lives estimated by the Division, appropriate amounts of . 1. .' depreciation are determined and the final RCNLD's are arrived at ,.' by items. +6? The Valuation Division maintains on a current basis over seventy different "cost factor" or price . trending curves, • each of. which is applicable to a different class or type of -utility or railroad property. . The information for constructing ' those curvos is obtained from many sources, such as actual ! " comparative costs from utility compnnios, coats and cost indexes furnished and published by the Interstato Con)mnrce Commission, , Lnginooring Nows-Record, Marshall & :tovons Valuation Dorvico, Whitman, Roquardt and A:!nociatos, 011 and Can Journal , Railway Age, E. II. Doeckh and Associates, etc. The lives used in depreciation determinations are also based on many .source of • • Information, but mainly on observed ages of utility and railroad properties at time of retirement and, more iml7ortantly, on ; application of mortality curves to gross addition and retirement . � data of properties of utilities and railroads consisting .of many . similar units. The condition percent tables used for deprecia- tion calculationsby the Division are based on present worth principles (using; sinking fund formulas) adjusted for reduced ; ! productivity with age. i The actual allocation calculations are somewhat as �. follows: By consideration of the indicators of value, historical cost less depreciation, reproduction cost new less depreciation, capitalized earnings, and the .market value of stock and debt, furnished by the Valuation Division to the Board for each assessee, the Board determines the ,unitary assessed values. The unitary assessed values are than submitted by the Board to the Valuation Division for allocation to taxing jurisdictions and preparation i of Board Rolls for each county and for each city having its oum assessor. The Division compares the total unitary assessed valus of the properties of a particular assessee with the total RULD of the same properties as determined by the studies mentioned above. Suppose, for example, the Board's unitary .assessed value is $3,500,000 and the comparable. total RC;dLD is w"U090007000. The t - ratio of assessed value to RCIJLD then, is. 35%. If the allocated assessment of each item listed in the assessee' s property state t ment is found by multiplying the RULD of each item by 35f9 and i. r then all the allocated assessments are added up, they will total ' j $3,500,000, the total unitary assessment fixed by the Board. There are some deviations from the strict policy of . allocating assessed valuo of the unit by application of the ' ► �. ratio of the assessed value to RCNLD. Certain: properties which i . aro not of a special-purpose character (e.g. land and material , and supplies). are first segregated from the unit value and 'are given an allocated assessed value that is equal to the respective .� t . products of their appralsed value and the ratio of the assessed i value of the unit to the appraised value of the unit. Then, r after the total unitary value is adjusted by the total allocated ,1 assessed value of these non-special-purpose properties, the •� # remainder is spread to the component parts in proportion to RCNLD, as described above. The allocated assessments of these •: ; i non-special-purpose properties is a comparatively sinall percent- age of the total unitary assessed values. It probably should bo montionod that non-uni.tnry , proportion of state ansonsees do not prosont an allocation problem. Thin typo of proporty consist: of non-operative r propertion, thnt in, propert;icn owned but not unod in tho primary function of tho compnn:r, nisch an landa ovinod by a rnil- � road but leased out for agricultural purposes, propertios loaned from others by the asscssco, possessory interests, and money. Those items are listed in the property statement of .tho asses'aoa by tax. code areas, and ' the Valuation Division detorminon the + market value of each, item separately. Assessments for these properties, which are 25% of maricet value) are recommended by ' the Division to the Board for adoption. r 010 0.4 3/14/67 • An Outlino �of the Principlos Adhered to and the j ,. Proc:eduros Followod by the California Jtato hoard or Equalization in the Valuation of the Unitary . Properties of Public Utilities and Railroads For Taxation Purposes In the Revenue and Taxation Code, value is defined as follows: j " 'Value ' , 'full cash valueor 'cash value ' menna the amount at which property would be taken in payment of it dust debt from a solvent debtor." Iundamentally, this is the same as the somewhat expanded definition of value that the Committee on unit Valuation of the National Association of Tax Administrators 1 included in its report on "Appraisal of Railroad and Other Public y Utility Property for Ad Valorem Tax Purposes", published in 1954. In its report the committee defined value for tax purposes as follows: "'Valuo for tax purposes' is the price at which a t" property could be sold at a given date if the seller had ample opportunity to seek out the highest bidder, and the bidders, in . turn, had ample opportunity to inform themselves of the character- istics of the property and to ascertain the terms upon which alternative properties, if any, could be bought. It is not the same thing as cost,; although the two tend to be .equal at the time ! the cost is incurred. It is not the same thing as 'value for rate-making purposes ` although the rate base established .by a regulatory agency tends to equal the value for tax purposes if the utility is able' to earn what the agency regards as a fair return and no more, and the agency's concept of a fair return coincides with that of the investing public. Value is not necessarily the present worth of the future income actually to � . be derived from the property, nor is it necessarily the present worth of the assessor's own best estimate of the future income; t itis the expectations of investors which govern values, even though they may differ from those of the assessor." The Board subscribes to this definition of value and In the valuation of the operative properties of state assessees endeavors to use principles and follow procedures that conform .. • to this definition. To the extent possible, the Board' s valuations are unit appraisals, that is, appraisals of integrated properties as a whole without any reference to the value of the component parts. Complete new appraisals are trade each year. i In making unit appraisals of utility and railroad •i ' properties, four main indicators of value are developed, not i S .. all of which are available for All properties. Those }Indicators • � ares t ' 1. Historical cost lona doprociation 2. Reproduction cost now less depreciation 3. Capitalized earnings Stock, and debt value. The Doard. is also supplied with other data bearing on • value, whore appropriate. Historical cost less de red to be a very- important indicator of value for gas,_electri.c and • . ; • � "telephone companies-because i is comparable in Californ a to the rate base, the amount upon which the regulatory commission allows the utility to earn what it considers a fair rate of return sufficient to provide adequate service to the consumer •1 and to attract necessary additional capital investment. It is (' not an important indicator of value for railroad properties, however, as most railroad companies, by reason of the competi- tion to which they are subject are unable to charge enough to make a fair return on the net Investment in their properties. This indicator includes some amounts that are not included in the rate base and excludes some that are included. For example, it includes Donations in Aid of Construction, which is excluded in the rate base, as there is nothing in the revenue laws of the State that excludes. this property from taxation, 'und excludes :, "working cash" , whish Is included in the rate base as. this is ' an intangible and the hoard's unit assessments .inciude only tangible property. The depreciation which is deducted from the original cost is the book depreciation, since this is the amount that has been deducted to arrive at the rate base. • It might be well to point out that if a public utility • is sold, the price paid by the new ormer does not become the rate base. The rate base continues to be the original investment (minus depreciation) in the property made at the time property • � was first devoted to public use. Reproduction cost new .less doprociat__ion is not con- I siderod to be _cin important indicator of value for uric tiiry�tato� -assessed property. No prospective purchaDera it is believed, would consider paying an amount equal to the reproduction -cost new less depreciation of a gas, electric or telephone company ' when it greatly exceeds the historical cost new less depreciation ' upon which the regulatory commission would allow him to earn a j "fair" return. For railroad properties it is meaningless because of the existence of the great amount of obsolescence and other functional inefficiency in the properties. However this indicator is regarded as a ceiling for taxable 'value. The California . • Constitution exempts franchises from property tax, and it is considered that any value greater than reproduction cost new less depreciation is franchise value. -A tt� "3- As earnings aro the vory essence of value the Board fools that capitalized enrninr valuo 13 one of the most important } valuo indicators. In capitalizing earnings, tho Doard .3eeks to find tho valuo to a projpoctivo purchaser--tho amount that the . I prospoctivo purchasor could pny for tho proporty and havo the original cost returned to him by the Limo the property is worn out, with interest on his investment until it is fully returned. The Board capitalizes three different amounts. The- first of these is not operating revenue before depreciation. - The reason for not deducting depreciation is that the present owner's � ' i depreciation charges are for writing off ht^ investment and are not necessarily an accurate statement of the yearly loss in . the present worth of the futuro earnings. In capitalizing before i i depreciation, the Board adds an increment to the basic capital- ization rate that will provide for a return to the purchaser of j his investment by the expiration of the calculated composite life expectancy of the property. This increment provides for deprecia— tion eprecia tion of the investment of the prospective purchaser, .or return of his capital, not of the present owner' s cost. The Board does not capitalize net .earnings after depreciation, that is, in perpetuity, as this would produce the same appraised value for an old property that has a life expectancy of one year and for a relatively now property that has a life expectancy of, say, 25 years. ! in capitalizing before depreciation, the income taxes are "normalized" by adding back into the stated amount of taxes any reductions due to rapid amortization, accelerated depreciations ' and investment tax credit, as they would not be available to the -purchaser of the property. Also, any amounts that are due to adjustments of prior years' taxes are eliminated. The' second amount the Board capitalizes is net operating revenue before depreciation and income taxes. The rate for ; capitalization at this point is the basic rate, plus increments for depreciation and for income taxes. Tho -incomo tax increment . is obtained by the use of a formula that takes into account the effect of the deprociation charges and the probable capital . •' � structure of the prospective purchaser, using the assumption that the capital structure will be the same for all companies in a given class. The Board feels that say, a railroad does ' ! not have a greater value than another sMply because it has more •I. � ' indebtedness. and therefore has a smaller income tax obligation, other things being equal. The third amount that the Board capitalizes is net •• : before depreciation, income taxes, and ad valorem taxes. The ' total capitalization rate in this case includes an increment for '.� ad valorem taxes based on the total taxes levied on the previous 711 1T • ycnr's a^_ossed 'valuo dividod by tho provious year' s marlcot value. This in effoct bases ad valorem taxea on the. value j being Found rathor than on the valuo that served ns the prior t year' s tax baso. Thin Increment can be accurately determined only for an intrastate company and is only used for such companion. The hoard considers the capitalization of this • earning figure the most reliable of its capitalized income figures. The basic capitalization rate used in onrning-value calculations is determined by the.Board on the basis of current . rates of interest or return which the prospective purchaser would have to pay on the various typos of securities with which -•.he would finance his purchase. The capitalization ofpast earnings is a valid indi- cator of value only if the past earnings reasonably reflect, in { ' • ''' ' the judgment of the .appraiser, what the earnings will be in the future. For this reason, the Board adjusts earnings before capitalizing to remove the effect of any nonrecurring losses of income, and to take into account any increase in income that can '.-... be reasonably expected, such as that due to future rate increases. -. The Board capitalizes a five-year average income for companies • with little or no capital expansion such as railroads, but for growing companies such as gas, electric, and telephone companies, the Board feels that only the income of the latest year is - pertinent, as the incomo of any prior year does- not reflect the income from the presently existing property, the property being :��.. valued. " The stock and debt indicator -of value is derived for all companies whose securities are traded on the market in substantial volume. The market value of the outstanding equity ;�'� •�•'' securities and debt obligations, plus the market value of the current and deferred liabilities, establishes the gross stock ! ( •'• " . and debt value. To obtain the market value of the tangible unitary property, all assets that are not part of the imitary " property or are not assessable whose value is reflected in the market value of the liabilities must be deducted. These deductible items consist of such property as accounts receivable, " ..nonoperative properties, sinking funds, stock and bonds of other '. companies, and licensed motor vehicles. The average prices of i • '�. . securities for th© previous twelve months. are used for current ' value determinations, as this period is believed to be sufficiently long to smooth out the effects of any momentary extraneous in- fluences on the market, but not too long to reflect the current . •' I opinion of value in the market place.• ! ln. the final determination of market value, the Board does not use a formula to weight the various indicators-of value, ! but gives 'such voight to each indicator of value for each assessee l as appears to be Justified by all the facts in its possession. ' e APPENDIX III CONSTITUTIONAL PROVISIONS Article XIII Section 160 et seq . - Taxation of Publicly Owned Property. Reference here is to the East Bay Municipal Utility District . Property of municipal districts is exempt .where those properties lie within the district boundaries . Until recently, the method of assessing the properties located outside the District was similar to-other properties . In the last election, a Constitutional Amendment was passed prohibiting the assessor from increasing the value of those lands lying outside the District by any percentage greater than the population increase. Said factor is to be computed by the State Controller. Therefore population does not reflect a full measure of the increase in property values . Article XIII Section 206 . This Section provides. that private non-profit golf courses shall be assessed as golf courses rather than according to the market value of the land. It is discriminatory in that it allows country club golf courses to be assessed at a lower rate than a public golf course. Article XIII Section 14-4/5 (Taxation of "Insurance Companies) and Section 16 (Taxation of Corporations) refer to the taxation of banks and corporations, Banks and insurance companies pay a State tax measured on their return which is in lieu of certain property taxes. Article XXVIII - Open Space Land. This provides for preferential treatment of real estate based upon its earning ability. rather -than market value of the property. At the present, this - exemption is not significant in Contra Costa County. However, there Taxes and Assessments Committee a3 . .-fi is'!. action in the Legislature to remove many of the restrictions required to qualify as open space land. If this is done, there could be a substantial drain on local revenue as it is non- reimburseable by the State.- REVENUE AND TAXATION CODE PROVISIONS Section 209.5 provides that vessels of more than 50 tons burden are exempt from taxation while under construction. Other types of property are taxable while under construction. Sections 218 and 219 provide for homeowners ' $750. 00 exemption and for 30%exemption in business inventory. Unless there is legislation extending this 30%, it will revert to 15%. next year. The monies lost by these exemptions are reimbursed by the State. Section 227 . Certain documented vessels, in particular fishing vessels, are to be assessed at l% of full cash value instead of the 25% used for other properties . This is not signifi- cant in Contra Costa County at the present time. Section 988 provides that the value of motion pictures is the value of the tangible material, that is the salvage value of the film itself. This is not significant in Contra Costa County, but is a good example of preferential treatment. Section 991. Baled cotton is taxed. at 1/10 of 1% of its value. - Section 992 . When wine, winery products, or brandy products are manufactured in California by a licensed wine grower, they are subject to taxation only once while so held on the first day in March on which they are held immediately following production c2 Taxes and Assessments Committee or manufacture Section 5363 . Aircraft are to be taxed. at 1-1/2% of the full cash value as determined by the assessor. This is in compari- son to the tax of other_ properties which in general amounts to between 2 and 3-1/2% of market value. Sections 5501 through 5523 . This provides for the taxa- tion of livestock used for the production of meat for human con- sumption or fibre, not including swine or dairy cattle or male animals held primarily for breeding purposes . The rate of tax im- posed is 5 mills per head a day that the animal is within the County. Not only has this substantially reduced the tax revenue from our largest agricultural industry, .but it becomes an adminis- trative nightmare in attempting to enforce the law as it is written. .Taxes and Assessments Committee / IN THE BOARD OF SUPERVISORS OF CONTRA COSTA COUNTY, STATE 'OF CALIFORNIA December 7t 1971. "In the Matter of Report of ) Human Resources Committee ) with respect to 1969 Contra ) a. Costa County Grand Jury ) Reports ) This Board on January 6, 1970 having referred to its Human Resources Committee (Supervisors J. E. Moriarty. and A. M. Dias) Y reports of the Probation Committee and Social Welfare Committee of the 1969 Contra Costa County Grand .Jury; and Supervisor Moriarty having reported this day on behalf of said committee that report on these matters has been held in abey- ance pending review of the results of the committee set up by the County Administrator to coordinate the activities of the four depart- ments, namely, probation, welfare, hospital and health, and pending action on consolidation of some or all of these departments; and Supervisor Moriarty having indicated that recent action taken by the Board in implementing the consolidation of the hospital, health and welfare departments should eliminate most of the coordinating problems referred to by the Grand Jury reports; however, pending the consolidation of the probation department with the new combined department, the Board of Supervisors, through its Human Resources Committee should make sure that close coordination is maintained. between these departments; and On motion of Supervisor Moriarty, seconded by Supervisor Dias,, IT IS BY THE BOARD ORDERED that the report of its Human Resources Committee is APPROVED. The foregoing order was passed by the following vote -of the Board: AYES: Supervisors A. M. Dias, J. E. Moriarty., W. N. Boggess, E. A. Linscheid, J. P. Kenny. NOES: None. ABSENT: None. I HEREBY CERTIFY that the foregoing is a true and correct copy of an order entered on the minutes .of said Board of Supervisors on the date aforesaid. Witness my hand and the Seal cc : County Administrator of the Board of Supervisors affixed County Welfare Director this 7th day. of December, 1971- C oun ty Probation 971.County' Probation Officer County Medical 'Director W. T. PAASCH, CLERK County Health Officer. By_ - Elsi6 Pigott Deputy C ler C <1* I I . ,%� , � �� e. . - ' I. . . � _VV.%%% -.*�,�"� t ��::,,"',","��,�;:,�,I!.��.,. _ I . ,. .. ,, � ,;�_1 ,�4­,-_r� ,�,'�'.�..,. , I '_�,:`�;-.�.�,�..-. ;_� . "... � . .1 1% _� '; —:�_,"­ ,, ., �� :��i�:."��.��:�,���,���oll �t�.�.��,�, �,,1,",� t �I�,- � �. !���4`�:��-�.,,:P�-,� �4 J t t -1 c �� �}�� i yi BC A tDrOF, SUPERV ISORS f T, rr � s Oe� TR- dOSTA CbIJNTV " ':'ADMINISTRATION BUILDINGIp k,d x RTINEZ CAUFORNIAs94553 wl" -.1,:.­SMA �� 1-1--.11—di r/�.r. 11111 � � , I&I'.'-_;. h� x ! SUPERVISOR,THIRD DISTRICT f `,'=� rt - �e 3445 GOLDEN GATEWAY y 4.�M �� ` � � 1 I �� k LAMES E MORIARTY LAFAVETTE,CALIFORNIA 94549 �t . r ,4._ __ „+ { 1� "'�/s em J PHONE 2844733 f /: (%'{ , . - �' 5.1.F 4-" ',t*, ..,,•.rf }(,(�1 '.-"c Vit' ' 1. 111. 1. DC/ I/ i 7.7/ n �* ILL y r G! CzK 3?A�i7 rr �11� t t{ey17 , COl�' 1M3A 05 :A �O j 'T0• Board of Supervisors sNa), -i .i ::''...'l, '' .,::.,: t FROM• :;Human Resources Commit'tee = (Moriarty and`'Dias) a` . d p The reports of. 'the Probation Commiatee '`and :the Social . - 1 , : 1 ;: Welfare:' Committee of the :1969. Grand Jury are still :a - . matter ;of record as Board `referrals to thiis Committee ,t Report :on these matters has been Yield in' abeyance pending . ,, x review 'of the' results of the committee 'set up <by. the., County Administrator to coordinate' the activities of the r ' 'V , four:.departments, ;namely,', ,probation, .welfare,. hospital "' a and health.}`'Repot.rt,.has 'also -been"%held .up 'pending action` ' at onconsolidation of some or all of these departments. ' j ,.The. Boards recent ,action -implementing the `c onsoTidation r }';; t of ;ahe -hospital, health :and '.welfar.e :departments.`sYiould " -. eliminate .most of the coordinating problems referred to x- by;' the Grand .Jury_reports However, pending the consol : s , idation; of ,he probation dep1. artment faith the new: combined;, ,d`epartment1. , .. the` Board of Supervisors, through 11 Iit%. 11s Human Y Resources Committee ahould make'.sur e . that :c lose :coordin 11­11--ation,. s maintained between -these dep s�"" } Ap . „ a l ; pery sor J. Mo arty upervi r M. D s ,t Da; ed• December- 7, 1971 Y , £ /' I.s ` Y i ~ - + X 4 d Y ,A ys r - - r ' R {-t\!�,�.1 1. sG �, ` '.1 j 5 fir, i — _ - -_ - __ — T -., ._,. } ,^�_ - e In; the. Board . of _S U, a Contra ;Costa County, State`„o'f California: <. December 7 . In the Matter of - t Report of the Special Districts ttee, -of . .._ the 1971 `Contra Costa..''.-_ :County-Grand Juror o -This Board =havin' received a, copy;-of .the report`- of' 'the Special Districts -Committee of the 1971 Contr€' 'Costa County Grand Jury commenting. and, making rec,ommendatt ons, wi.th respect:.to fair-,emplo7ment' practices.-in this County; On..,motion -of"'Supervisor . .A. • Linccheid seconded by Supervisor. A.,X,-Dias; 'IT_ IS' BY Tf9 -BOARD :"ORDERED ' that. -receipt of said ^report is ACKNOWLEDGED, -and-. .same:.is REFERRED to :the County Director of Per sonne1':.,and the; County' Administrator The .fore. of ng order was passed` by the fo3lawing vote AYES,a Sup®rvisora A,- :E, E.. A., -Linscheid- J. _.P». 4.enny. ' NOES None,. ABSENT, Supervisor W.. N. Boggess . d. + I -hereby, certify that `the`'foregoing is a true and correct copy of an order entered on the minutes-of said Board of Superyisors'on the date aforesaid: ce.- Grand. Jury Witness. my hand and the-Seal of•the Board of Personn®1 Director Supervisors Admini trator " affixed this 7th _ddy of December , 1971- . L W. T. PAASCH, Clerk By ,`Deputy Clerk _ .. Lourette .Kine id M 24.4/TI 10M 69 SPECIAL DISTRICTS COMMITTEE 7 ! REG VILIJ Fortney H. Stark, Jr. , Chairman / . - � �� 7� G. Stewart Paul Donald E. Perkins W. T. P A A S C H Peter A. Veitch CLLR BOAR F SUPERVI So?s N COSTA Arthur Wagstaff By ...... .- FAIR EMPLOYMENT PRACTICES IN CONTRA COSTA COUNTY Contra Costa County is not providing a fair share of jobs to minority people. The following report is based on the most complete survey made since the 1969 report of Mrs. Hernandez for the Human Relations Commission. This report covers far more employees as it includes all the special districts in the county who may be considered to be using public funds to create jobs. The report indicates the lack of a positive fair employment program. This committee interviewed 88- organizations representing over 25,000 jobs. Special districts wholly within the county, excluding those in the heavily-black cities of Richmond and Pittsburg, had a black hiring record of only 3.85 percent. The minority population of the county is 7.4 percent, resulting in a hiring disparity of almost 50 percent. The overall statistics show 5.9 percent black employment as opposed to 7 .4 percent population. The good example set by the Bay Area Rapid Transit. District in implementing a positive program for minority hiring should be followed by the Board of Supervisors and the governing bodies of all independent districts in the county. By taking a positive stand and following up by means of written reports this county can be the leader in the spirit as well as the letter of the legal and moral responsibility to provide equal opportunities. Special Districts Committee z : T The committee has made the following observations as a result of its survey and personal interviews : 1. Public agencies are not hiring minorities in a proportionate manner. 2 . Less than half of the districts have stated and universally understood employment policies' with regard to minorities. 3. Few of the districts keep employment records which would help them monitor their minority hiring and promotion actions. RECOMMENDATIONS While there are some bright spots in the county govern- ment minority hiring picture, it is obvious that more must be done. especially in the area of Black hiring. Toward this end the follow- ing actions are recommended. 1. That the Board of Supervisors take the lead in encouraging county departments , agencies, and districts to adopt affirmative minority hiring practice statements . 2 . That the Board of Supervisors require 'a yearly minority employment report of all departments and. districts within its control. 3. That the Board of Supervisors . and Grand Jury encourage all independent and inter-county districts to take part in the affirmative action program outlined in 1 and 2 . COMMENTS The members of the committee have examined a number of hiring practice policy statements and one stands above the others . The fair employment practices statement of the Bay Area Rapid Transit District (Appendix I) is both concise and affirmative in nature. Further, its communication through the BART organization has proved Special Districts Committee to be an effective means of inspiring an affirmative action pro- gram. Consequently, we -recommend that the Board of Supervisors use this policy as a model for the county. We further recommend that the Board of Supervisors tailor the recommended yearly employment report after the Federal Employer Information Report EEO-l. The form is the product of the Equal Employment Opportunity Commission and the Department of Labor and has proved to be comprehensive and readily understand- able (Appendix II) . The final recommendation is made with the hope in mind that the Board of Supervisors will view the Black employment/popu- lation disparity as a challenge which would be accepted by all . districts serving the citizens of Contra Costa County. Even though the Board does not "control" the Independent Districts it is felt that the Board does have the ability to lead in a program for , affirmative minority hiring action. Special . Districts Committee APPENDIX I BAY AREA RAPID 'TRANSIT DISTRICT f POLICY OF EMPLOYMENT `' GENERAL It. is the policy of the District that: i 1. No person seeking employment shall. be dis- criminated against because of: a. race b. creed C. color d. national origin e. sex f age g. or, physical handicap which does not limit his ability to perform the job 2. The District tivi11 take affirmative action to insure that applicants are employed . nd employees are treated during employment without regard to the foregoing. Such action shall include but not be limited to the following: a. Employment, upgrading, demotion or transfer b. Layoff or termination c. Recruitment and recruitment advertising d. Rates of pay or other forms of compen- sation e. Selection and trMning 3. Only bona fide qualifications to perform the work shall be considered. 4. Each Department Head and management employee shall make imaginative and positive efforts to assure fair employment- and promotional oppor- tunities for all qualified persons. I ADMINISTRATION . 1. Departnnent liC ZLCl$ anoher District personnel authorised to hire, prornote or recommend effecti.vcly such actions, shall he, responsible for irnplementat:ion of the spirit and t:hc letter of this policy as well as of local, State and Federal laws and orders relating; to fair C nr- ployment and equal opportunity. 2. Prior to rejection of an apparently qualified employment applicant or candidate for pro- motion who is also a member of a minority race, a District manager or supervisor con- sidering the individual will submit his reasons for rejection in writing through the Personnel s i Department to the Assistant- General Manager - ! f Administration for District management review i prior to final action. l� 3. It is the intent of this policy to develop and maintain a District staff representative of all residents of the District. 4. Consistent with this policy, the best qualified person shall be selected for employment or promotion. i ill'.VENL)E\ A Farna ICO( ::•vi-.Cd) .101 CT]; col'!.;n • El"7D] tIVI'l."M 'P _U rion a Office of Fe.0 C ra I C)r'-1 o Contract Connipliancri I'lans for Vro&rc,;-, Pro_-rani Please use tL— this form If box 11.3s prebddresf.od label. A seporzte Part 11 rinist he filed for each f4,,polting. Unit of a hrn_rlt employs, including a Part 11 "Conso!idatcd Report" surn- roarizing, the daca for the entire company and a report cov.cring Cia principal or headquarters unit. A Sin'V,I_­cstabfi-'..m3nt cinploycrn-11.1st file One Part 11 with its Part I form. SC-2 Instruc. Section F—R-71"O,"TING UNIT IDEE'17MCATI.0m OMCE tions USE ONLY 1. Name of Company d. 7b, Reporting un;,1 for which this report is filed. (Answer in full. If a combined report, covering two or more units p!easc so indicate I 13 and ij:!n,F'y the, aroa co,:_,r d by the combined report.) 0. 9b(i) a. Name of reporiing unit f. Address (r1ur,,.5cr and street) I City or tcoin I County S'a to I ZIP code 9. M (Sea section 11i of instructio li, b. Employer ld�,ntifl,:z:tion No ffiilllilc. Office Use Only ns) IIIII � Ih. S2cton G—E;PLOY�.iZ;'.77' DATA o" this ropp.-Ling vr:7 ­Pcport all pern-innont, ternp.orny, or part-time vnipfoya2s unless speciFira!ly exc!ude'd as sct forth in Section 11f of the inS,'rL1C',i0.1-­ Encrt;,.a appropiate, fi uros on ail fins and in Z.71 COlUrins. b:!conr;d-rcd as zeros. (See section 9b(2) or the instructions on hovito fill out this tob!-3,and section 10 fora description or:the job c�;egories.) Incoluains.1,2,and it cnyloyc�,s 4n the repo�t;n., tfnt�, not rnn_r-e�y tfios,� in r.-Jncritygrows. 3, includ!! a. 1,2,3, 14 ALL FL1PL0`i'EES MINORITY GROUP E..:PLO)'EES I.We Fernala 9b(2) Job Total Male Female sp-aistl - Spani5li categories (cot. 2+3) negro 0ilent*"t I Arnericza S tlezro Oriental Ara.2cizan SU:-')2!-ntJ IndianAmericen Indiankr:erican I 10 (1) (2) (3) (4) (5) (6) (7) (9) (10) Officials and mina,ers.. ............................................................ ............... .............. .............................. .............. ............ ............... .. .............. Proessionals................. ...•-•.................._............••............_. Technicians.................... ......................................................... ............................................ .............. ............... .............. ............... ............... Saleswor;;crs................. .......................................•............................................................. ............... ............... .............. ............. ........:...... Officeand clerical...................................................................... .............. .............. ............... .............. .............. .............. .............. ............... Craftsmen (Skilled)....... ......................................:.................... ............................................................ .............. ............. .............. ............... Operatives (Semi-skilled)............-••-•-•.................._........._._...... ................................. ii ......................................... ............................. .............. ............... Laborers (Unskilled)------ ............................••..._...._..-•-•--..._. ..... . ..... ......__-• ............. Serviceworkers............. .............. ....................................... .............. .............. ............ ............... ............................. ............... TOTAL Total emp!oyrien, from previous report (if any) (The data below shill :!so be included in the figures for the appropriate occupr-'ional cat;cries ZLove) On-the- job White collar.. .................... ........ .... ... trainees Production.... ....................I...... .............. . ........ ............ ... ..... 1, -oc- I See cxpkri�ition of "mirafityer"Hic-bon" in stiction 9:)�'2) of thma instructions. Th.--. term, "S'nanis:i ­,rna! I Arn�.'ricln.­ includes all Muxiczin, Puerto Cr-1 1 persons of I o F�ic�.,n, Cuban, or Spanish criZin..1-ho term, ",kr.-,4,rican Indian," rJcz5 not include E-�kinioti and Atculs. 2Report only emp!rjycas rnrollad in formal on-the-iob tra;r.in:: pro7.ranis. t Seo instr., Section C1'i;;—Continued tions 11x, 2a. Does this ReportinE Unit employ apprentices? 4. Dates of payroll p2riod used—'folk sihou!,l Father and rep ' Ily 1 ❑ Yes 2 ❑ No ernployr•.crit da"a ct tiro repo:tin� unit durint; only one pay, b. If ''Yes," is Apprenticeship Schedule A attached? period in Doccnhbcr, ,1,=.nu<,ry, Fet:ru.�y or to::heir. i lulti•esta;):i rrient ctitployers need not u:;c the sarne pcyroil period for all un 1 ❑ Yes ' 2 Pio—Apprentices were reported earlier on Apprentice- - ........................::........................................................................ ship Information Rceort EEO-2 5. Date of last report submitted for this reporting unit................ 3 ❑ N(—othor reason (explain in Section I "Remarks"). ............................................................................................... 3. Novi was information as to race or ethnic group in section GI ` obtained? ❑ No report filed for this unit last year. Please note that Muse data may he obtained by visual survey 6. Are there any employee facilities (i.e., drinking fountains, r 9b(2). or post-crop!oyn;ent records. Neither visa%.l _or✓eys nor post- rooms, rc:cre tional areas, lunchrooms, etc.) at thi; repo employrn nt records arc pre!iibi:::d by any Federal, State or local unit which arc provided for employees on a racially separ, ( law. All sp_cified data are required to be filled in by lave. basis? 1 ❑ Visual Survey 3 ❑ Other—Spcciiy................... 1 ❑ Yes y 2 ❑ Employment Record ............................................ 2 ❑ No- Secticn k;—E:_`Or Tti:: UiiiT I?:FOC '1TI0N I 1. Indicate by marking in the appropriate box the type of reporting unit for which this copy of the form is submitted (;DARK ONLY ONE BO: (1) ❑ Sir+pie-cstabGshment Employer Report ` (3) -❑ Principal or Fleadquarters unit Report P;iulti•estabfishment Employer: (4) ❑ Individual Establishment Report (submit one for.ci establishment) (2) ❑ Company-wido Consolidated Report The fol!owinz are designated "Combined Reporting Units" and are d--scribed in Section 82 of the insiruz:tions. They are optional reporting alternatives and should be used only after consulting the instructions. All Combined Reports must include an a:techm2nt givi nz- the .,ddress and total emp:oyrmcnt of each establishment covn-red by the report. Note that (5) through (9) may be zpp!ied to establishments in the Retail Trade, X1.1holesale Trade, Finance, Real Estate, and Service Industries,rgarc'eSs or size,as well as establishmo.n.ts with less than 50 employees in other industries. O ❑ y' (10) ❑ Sm • 5 "D�si�n ed Cit• of .:!!I Establishment Report covering establisfhm2nts (6) ❑ Standard Metropolitan Statistiral Area of.............................. less then 25r ernploy-n; (must he accomp.nnied by a I m showing ep!oymont fiCures by occupation and State). (7) ❑ Standard r,12tropclitan Statistical Area excluding establish- mems located in the "Designated City" of............................ (11) ❑ F:eport ander a Special Reporting Procedure obtainod prior written permiss;on of the icirrt Reporting Ccmmittc r (3) ❑ Standard Fletrepolitan Statistical Area of ............................ .. covering only establishments in the State (12) E] Other—Explain. ............................................................... of ......................................................................................... r (9) E] State of ............................................................ excludin.- all ......................................................................................... Standard r.Ictrcpolitan Statistical Areas. ......................................................................................... } 2. If you have roari;ed (3), (3) or (�I) above—Is tha location 3. I; the mcior activity it this re orting unit the same as that OFFICE t of the estnbiishn,ent the s:mo os that reported I:st year? repohted last year? t USE I 9b(3)(b) 1 ❑ Yes 2 ❑ No 3 ❑ i!o report h.st year 1 ❑ Yes 2 ❑ No 3 ❑ No report last year ONLY 4. What is tlh2 major .c'Mty.of this reporting unit? (Ee spe-ethic, predu::t or type of service provided. "r,ianulacturing," "�'1;io'e- i.e., mhnufacuring steal ccsti:hs, retail Lroc vrl,o;e-.ala sra2,' "icetail,' Processing,' Sao s," etc., are not sul,i- plumbing supplies, title in_urance, etc. h.cludo the type of ci�nt.) j. Scc:ion 1—S._;:1:1i„t1 { Use this itern to give any identiric.tion data nl-,poaring on last r..;.or< v4iich differs from that given above, explain major changes in emplo- ment, changes in compo>i,;on or reporting units, and other p^_rtinert info matien. ! Secticn!—S!�?::`,'7U:,_.A?;f]1C ;!"i;r'IC:':1"{s:+ (To bo ans.,ercd by a tics- n:,.:d o;,icial of Vic^eponirg Unit) �— Pletse note iht`. the siN;;;tura of aria>i:onsit.le R:norJn:v Unit o:iicirtl i; cot required if all flz i i Ii ro oro; arc pre;:incl at h ,u:ivarter 9b(4) si,7n::d for in Pair, I. In 1.1-1t .t c _:ht, ci;_cl: the d• i „ilea bax in i;L:cr.of :.._ r nciwe. All ctlt^r i;.forr.hrtiun in tni, Section mu ' be comp!-:o, flame (Si;r,ature) --"— — ------- ----------- — —� D:ito -- ------ i i Choc%here if.si;r.ed for Ly a company hcauklLin rt:.r c`ici l in Pert i ❑ i. Name (fig::• c; mint)--------------- -P,a�i :- (i{h;,, cr a:hd stria•'.) — ----------.---- i, .Tela?::one Title — Cit; a;:J St_ta I ZIP cute I ' / i _ In the Board ` 6 Supervisors Contra Costa County'-' State of California December ? 19. In.the.Matter.of. •.Supplementary Report, of the Law Enforcdment,.'-:Commi.ttee ;.of the. 1971:` Contra Cost.'. . ' County-. Grand Jur This. Board having received copy >of a Supplementary Report' of the Law Enforcement; Cox: nit.tee `of the 1.57 .'Contra. Costa County Grand` Jury re.16te4 -to this operation :of •th'e Contra ..Cos to County Jail 'at Martinez -and. the Contra Costa County...Reha.bil tation Center at Claytonq On motion 'hof S�'ipery sor' 9*.'.'A. linsc}aei`d,: seconded by Super- F :'visor'-,A­ 'M Dias,; IT I3 :BY THE BOARD ORDERED: that receipt of a_ ff- aid report is `ACKNOWLEDGED, .an'd same,*is z°ofer'red to 'tlne Ccunty sheriCo"r.ones�;and, the County..Admires trator: Theforegoing order was passed by the following vote : AYES Super'.trisor A i 14. Dias;' J.. E. Moriarty; �! y g .Cts A, Linschbid,y , V . Pi" Kann - NOES: ,Non e'., "1 ABSENT: Supervisor W. N. ABoggePs . -1 hereby certify that the-foregoing is a true and correct-copy 0. an.order entered on the minutes of.-said Board of Supervisors on-the date aforesaid._ Ccl Brand Jury Witness my hand and'the.Seal of the-Board of Sheriff Supervisors. Administrator. affixed this the day of December 1971 • W. T. PAASCH, 'Clerk ByDeputy Clerk Laurette Kineaid H 24'4/71. IOM Release Date: .11-24-71 y C� SUPPLEMENTARY REPORT ON LAW ENFORCEMENT BY CONTRA COSTA COUNTY GRAND JURY This Grand Jury, after continuing investigation into. the operation of the Contra Costa County Jail at Martinez and the Contra Costa County Rehabilitation Center at Clayton, report our findings as a supplement to our previous report on "Law Enforcement." 1. We are deeply concerned over the security, or rather the lack of it, in the selection and supervision of prisoner work crews while working outside detention facilities. A. We found little or no screening of prisoners selected to work on prisoner work details insofar as their criminal records or background were concerned: only their o a cooperation as "workmen" being considered. This is due _ ' v in part to the fact that the Rehabilitation Center does a 4� < LL0 not receive the criminal records of their prisoners ("rap LL O7 sheet) when transferred to the Rehabilitation Center. The probation report, if any, on a prisoner usually does W LQ>1 not arrive until weeks after.-the prisoner. Because the .Rehabilitation Center is a minimum security facility it is presumed by our officials in charge that any prisoner sent there is not a security risk nor represents a threat to the public even while working on civil job work crews.,. Any prisoner, regard- less of his criminal record, may be placed on. a prison work crew by a civil clerk subject only to a night deputy' s approval--with no knowledge of the prisoner' s record. C 0_ AR,�Law Enforcement Committee is — B. We found the supervision and surveillance given prisoners while working under a civilian supervisor to be casual even for a civilian workman and when .appiied to a work crew of prisoners, this borders on negligence. Prisoners assigned to a work detail are turned over to the custody of a "deputized" civilian supervisor who is responsible for them until they are returned to the Rehabilitation Center. This supervisor, while technically deputized isnot considered to be a policeman, nor is he given any special training, instruction, or even written regu- lations by which he could be guided in providing adequate surveillance to prisoners. He is not allowed to carry arms of any kind, nor does he have any knowledge of the criminal background of the prisoners on his work crews for which he is responsible and has custody. . We therefore conclude that the present method of selecting and supervising prisoner work parties is lax, providing inadequate security to the public, and urge the Sheriff of Contra Costa County to promptly correct this method of operation. 2 . We are equally concerned over the lack of adequate security within our county jail at Martinez. Under present condi- tions of severe overcrowding and the general inadequacy of our jail, a prisoner is placed in jeopardy when put in our county jail. A new prisoner is all too often subjected to brutal sexual and Law Enforcement . Committee A physical assault by other prisoners while confined within the jail. A. We believe. it absolutely essential that segregation of prisoners be made in order to avoid confining prisoners awaiting trial and prisoners . charged with minor or non-violent offenses together in the same cells with prisoners charged with more serious crimes of violence and convicted criminals with records of violence. B. We also find that considering the serious overcrowding of our jail it is all the more necessary for even tighter security by jailers. Their duties as jailers include the protection of prisoners from each other as well as keeping them in secure custody. Faced with the responsibility of running an inadequate jail, our Sheriff should be using the best help he . can get as jailers. We must conclude with the opinion that the present practice of "breaking-in" new deputies, by assigning them to the jail_, cannot be justified considering the results . Law Enforcement Committee In the Board of Supervisors :of Contra ,Costa: County, State of :California No ember 9 In.the Matter. of Report of Probation `Comrriitt;ee _ of. the 1971 Contra .Costa .County Grand .Jury. The Board having :received a copy of- the'- report. of th-e . :Probation .C6mmitt:ee of the 1971-.•Contra'.".0osta' County Grand Jury; and The Board having h.eretofore. arranged to have the Board Chairman,.. James P.. • Kenny; and Board Vied - Chairman, _ E.. A, ` Linsch.eid, meet° with said' committee .to. discuss- its. report;. NOW, THEREFORE, ori`-motion of Supervisor W... N. Boggess , . ..seconded by Supervisor A.. M.- Dias, BE -IT 'BY THE BOARD ORDERED that receipt of said report is -ACKNOWLEDGED, ' and it is REFERRFD•-to the .aforenamed-:supervisors and .the• County Administrator, The 'f ore g o ing. orde'r_"`was passed by the following vote of .the - Board: AYES : Supervisors A. ' M. Dias°; J. E. Moriarty, ''1 W. N. .Boggess ,- E. A. Linscheid,: J. P. Kenny.._ NOES : None-.- ABSENT: one ABSENT: None .- I hereby certify thdf the.-.foregoing is 'a true and correct.copy of an order entered on the minutes-of.said Board of Supervisors on the' date aforesaid c c Mr.. A 1 yme r B Hws s e y , Witness my hand and the.Seal of the.Board'of •Supervisor .J.P. Kenny Supervisors Supervisor E.A-*'. Linsch:ed affixed this 9th day_of November -, 1971 . County Administrator--_ W.r L. PAASCH, Clerk County Probation Officer BY � Deputy Clerk M Tram -A. Scot.t: _ H 24 4/71 1OM J •s ��a. t '- �Z v P1�OBATION: C0_IVITTEF. � E .r Alymer ,B. Hussey, Chairman Leo Armstrong Vii. T, P e�► William C. Beck c�erx eop,•� of SUPERVIS pis Mrs . Bernice Lasell co A COOT By ' Deputy G: Stewart Paul - - The objective of Contra Costa Countv' s , probation system should be the rehabilitation and return to society of the optimum number of juveniles and adults whose problems 'and. offenses . have brought them under the supervision and control of that:- system. Comments. or 'reconmendations made herein are'the result of that point o . view. We believe than everyon6, . at whatever level. of county or city government they may be working, who has any relationship to the problems . of. delinquency and crime should accept this objective as the F=inal goal of their own. actions . Anyone unfamiliar with this subject might assume that rehabilitation is the exclusive concern:-of the County 'Probation Officer and his staff. . . It is not so.' A great -many other people . are involved such as : The Board of Supervisors , The ten Superior : Court Judges , The Juvenile Justice and Delinquency Prevention Commissions , The Social Service Department, The Sheriff' s Department, TheThe Justice and Municipal`• Cou.rts , The . City Police. Dep.artmentsi The 800 -licensed Foster 'Homes, in the county, Tile fifty or more private and volunteer organizations , both within" and outside the. county, who .offer rehabilitation, treatment and support services, Also the Federal and State governments which offer programs and support services to the counties Combating delinquency and -crime with rehabilitation Ca_le. . Probation Com-ni:ttee programs. s - a very complex problem involving, many persons and units of government who are relatively independent of each o,ther.,- Success in. this effort requires the constructive and wholehearted- understanding and cooperation• of all. To the extent that anyone takes expedient action based upon a narrow personal point of. view,. the efforts of others will be minimized, even nullified-. At . the risk of our seeming -naive to expect so many people to .voluntarily integrate their individual efforts effec- tively, we unequivocally state that it is the county' s only hope of real and significant progress in. the rehabilitation of its , delinquents and criminals . It is also the only hope for control- ling - the ontrolling the rapidly rising cost of such offenses .in the. county. We will refer back to these ideas 'at various times later in this report One further comment is necessary to make clear the manner in which the Probation Committee approached its investiga- tory responsibilities. We did not visit every facility nor inter- view every possible person or group that is involved in probation matters. We chose areas of probation activity in which there might be the greatest need for, or opportunity to, effect i mprovement. PROBATION FACILITIES Group Homes There are five group homes for boys; four of which are at Las Trampas Youth Village located in Bollinger Canyon at 36 Holly Court, San Ramon, and the fifth is . the..Walnut Creek Group Home at 2870 Kinney Drive. Group homes for girls are maintained Probation Committee • by a private agency, Youth Homes, Inc . The intended purpose is to furnish a "home-like," atmos- phere in which. six boys live under the care of a "house. mother" and the supervision of a Probation Department staff member.. Th,e boys attend local community schools' except -at Las Trampas Village (Bollinger Canyon) where some schooling is provided on the• grounds when needed for individual boys . Las Trampas Youth Village (Bollinger Canyon) The San Ramon address of- this group of homes is mislead- ing. They are . located deep in Bollinger Canyon, about eight miles northwest of the town of San ' Ramon on a former Nike mis-site site- which.. the county is .in the process of . acquiring from the .federal government. The site involves some eleven acres of land and other buildings. The five houses now used as group homes were the residences of missile crew officers.. We are told theother build- ings on the site are not in usable condition and that the cost to -make them so cannot be justified. We are also told that the original concept ,in 1956 , when the site was taken over, was to create' another Boys ' Ranch similar to the present one .at Byron. This appears to be an _extremely remote possibility at this . time. This Grand` Jury, .as were preceding Grand Juries, is I convinced that their operation is far too., costly, to justify their- indefinite continuance. Based on budgets for the period ending, June. 30, .1971 and the stated population capacity of each facility, the cost- of operating this facility- compared 'to others is as follows Probation Committee . _ y r Bollinger Canyon - $1,200 per month, per boy Walnut Creek Home 760 Byron Boys ' Ranch - 682 rr rr rr rr Juvenile Hall - 786%x" It it 11 *Based on actu_:l average daily population . o'f °161 during 1970 . Stated capacity is 85 . These figures speak for themselves. We recommend that plans be made now to phase out the Bollinger. Canyon homes as early as possible and -to replace them with equal or better homes where the boys can live and attend school in a normal community rather than in isolation. We make no judgment on the Board of Supervisor ',s origi- nal decision to acquire the missile site.. That is history: The land and buildings are said to have a value- approximating $90,000 .00. Some use by the county was necessary to start the acquisition process . and the use of the cottages as group, homes was the most attractive idea at the time. But this use has been con- tinued far too long with, apparently, little effort made.. to find. another. Again, let us look at the economics of the situation. Assuming the excess cost to be $400.00. per month per boy (a figure justified by the cost comparisons above) , our annual excess cost is 400 x 24(boys) x 12 (months)=$115 ,200.00 . Thus, the excess costs appear to exceed the value of the property each year of operation. The need to eliminate this budget -drain and taxpayer burden is critical and: corr,ective action ought._.to .be started at once. The physical' app.earance of_ °the cottages and grounds were una-ttractive. Uncut grass. and weeds were everywhere. It was Probation. Committee obvious .that the maintenance of this property is carried on barely above the level of n--glect. If we are trying to give the boys a home.-like atmosphere, we should also give them. home-like work assignments . There is no logical reason why each boy should not have some home duty -or -duties to perform daily, including, grass: cutting. and weed pulling. A. summer time vegetable .garden . would provide fresh food and a healthy, constructive therapy for them. Walnut Creek Group Home Except for its location and lower cost per boy, this home is 'subject to about the same critical .-comment as the Bollinger Canyon, homes The home is located in an acceptable neighborhodd of private homes. While the ,committee did not interview any of the neighbors, ;there is reason to believe that is is generally accepted by them. However, this does. not mean that the good will of the . neighbors is_assured on a continuing basis unless the home is maintained in. keeping with the standards of the neighborhood, or if the boys ' conduct is not properly controlled. Whether or not a home-like atmospriere exists in this house is open to some . question in view of the dilapidated condition of 'almost •every piece of ,furniture in it and. the deplorable condi- tion of the rear yard. When the house was visited in late March th-e rear yard was a jungle of high grass and weeds and defaced by the presence of' a collapsed plastic wading or swimming pool and general disarray. • While a, system of rewards' for' good conduct and penalties Probation Committee for poor conduct was in use, there was no apparent program of assigning specific daily chores around the house to each boy. Here, again, an opportunity for healthy work therapy and responsi- bility training is being missed. It was mentioned to the committee by the home supervisors that -there had been some unfavorable remarks. made by -ne-iglbors, against having a car parked on the street .all 'day bearing the county seal identification. The presence of thecar• raises- ques tions by the neighbors ' friends who come. to call and this .stamps the group home as something abnormal. in the community. We recom- mend that some way be :found to overcome this fac=tor,: which. is. :an embarrassment to the boys as well, by perhaps providing a means of covering the county seal while the car must b'e' parked ,the r e or finding a nearby vacant garage in which it may be stored during the day. General .Comment on Group Homes The-.Group Home idea is to place delinquent. boys who do not need the tighter controls of Juvenile Hall in a home-like atmosphere approaching that of a real home.. We ,seriously .question whether this purpose is being achieved.. First, there are no '!parents",, such as a married couple would represent, in the home. The house mother is pre'sen-t. 24 hours daily with minimum authority while the. home supervisor who carries the maximum authority is present normally only eight hours . Second., the house mother and supervisor are unrelated family-wise and their supervisor-subordinate relationship i.s far from being .representative of real parents or even foster parents . . Probation Committee This fact is not lost on the boys . The atmosphere at the homes is probably little -different from that in the public schools they attend during- the day — constant supervision without the precept and example of° marital and filial love. They are living a system- atized life, nota family one. This is not the fault of either the house mothers' or. . home supervisors They are all sincere and dedicated people who. are filled with compassionate concern for delinquent youths . We respect them for it and commend their efforts. It is the inherent weaknesses of the basic idea which cause it to fall short in the effort :to .-give these boys ._a true .home-like ,atmosphere. We..will -Piave more to say about this when we discuss the use or non-use of foster -homes. Boys ' Ranch at Byron This is a minimum security facility of good quality with a capable staff. Its stated capacity is 65 . The Probation Depart- , ment reports. an average daily population of 60.6 during 1970. Because of its superior quality it would seem. desirable to keep it operating at full capacity, or somewhat above, inview of the extreme overcrowding at Juvenile Hall, The principal disadvantage of this facility is its . remote location away from the county' s major centers of population. Much . time and money .is . spent in traveling between the Ranch and Martinez and the western sections of the county. Furthermore, the distance and lack of public transportation, creates<'a. major ' obs:tacl;e for: some families wishing to visit their sons.: Equally serious is the transportation problem for those 'boys' who work part of the week and Probation —Commit—tee serve time at the Ranch the balance of the week:. Most of the available work is in the western county area. . Since work/furlough programs are increasing as a .produc`- Live means of rehabilitation, we believe that another facility similar to Boys ' Ranch is needed in `th:e western side of the county. The. term "ranch" is a misnomer, suggesting wide, open spaces, and one may wonder where such land is to- be found . in the west side. It is .the nature of the facility that is important , not its geographical scope. At Boys ' - Ranch., the boys are given specific work assign- ment's in addition. to their schooling, counseling and recreation. They mow lawns, weed and trim, and do other maintenance work with- in their abilities . This is in sharp contrast to .the lack of such assignments at . the group homes. Juvenile Hall-Martinez Section 851 of the .Welfare and Institutions Code provides; "The juvenile hall . shall not be in, or connected with, any jail or prison, and, shall not be deemed to be nor be treated as a penal institution. It shall be conducted. in all ; res ects as nearly_like a Home as possible." (Emphasis ours- Contra Costa County' s Juvenile,.Hall falls so ' far short of provid- ing a home-like atmosphere and is built and operated so much like a jail, that''we can only consider it to be in complete violation of the Code. This facility was designed to house 85 persons when built in 1950. During the year 1970, .it had an average daily population of 161, 189% of design capacity. The highest Probation Committee population occurred in February 1970- at an average .of 210 .which " is 205% of intended capacity. The crowding is so great that three boys (or girls in the girls ' wing) sleep in a room (cell) intended for one. Since the rooms are too small to hold three cots, one boy must sleep on the floor, his mattress being stored under one of..the cots during the day. The v.entil'alt'ion and heating are poor and, as at. the group homes, the maintenance is at a' low level. As a result, conditions in the boys ' section border on .the inhuman. Committee .members. visiting this facility for the first time fel-t ashamed and embarrassed. The condition has been reported in numerous .Grand , Jury -reports in recent years so no pur- pose will be served by repeating the sorry details beyond what has been said above. Suffice it to say that locking a boy into one of these cells is not a first step toward his rehabilitation; it is more likely to be a step toward more serious offenses against society in the future. Conditions in the girls ' section of the Hall are not materially better. The Girls ' Residential Treatment Center, which is the third section of Juvenile Hall., stands in marked contrast to the other two sections. The space occupied was completely remodeled and renovated in 1969 . It is clean, well lighted, properly venti- lated and .tastefully decorated. The program in this Center pro- t E vides formal schooling, training in homemaking, counseling, i preparation for employment, free-time, activities and family involvement. This is. the .most constructive effort toward true f Probation Committee i r rehabilitation that the Cormittee has seen in all of its institu- tional visits. It was shocked, therefore, to read the following , comment in the County Administrator ' s 1971-72 budget submission to the Board of Supervisors referring to Juvenile Hall: "Some relief from the constantly overcrowded facilities has been gained this year by reducing the Girls ' Treatment Center Program and us-ing the vacated rooms for detention of delinquent girls ." This is not progress ; it is retrogression: With regard to new .commitments to Juvenile Hall, the Probation Committee is unanimously and firmly of the opinion that boys taken in-to .. the Hall for .the first time who -have -not yet been . adjudged delinquent must not, under any circumstances, be placed in a cell with boys who have been so adjudged. Aboy may have shown some delinquent tendency; but until he is legally declared delinquent, no contact with a delinquent boy should be permitted. Delinquency, in a sense, is a disease which spreads rapidly through personal associations . On September 26 , 1971, there were 81 delinquent boys and 49 delinquent girls , a total of 130, in Juvenile Hall. . This is a gratifying decrease from the peak population of February 1970 , but it is still 45 above the Hall' s design capacity. If new programs are instituted and actions taken; fully utilizing existing programs , including foster homes ; the overcrowding of the Hall. can be eliminated. We recommend that no boy or girl be detained at Juvenile Hall longer than 21 days. This should be adequate time in which to process the child' s case and, place him or her in one of the Probation .Committee programs outside Juvenile Hall. Of the 81 boys in-the-Hall on September 26th, 21, or 25%, had been there in excess of 21 days . Of the 49 girls being detained, 24, ,or 50%, had been there over 21 days. Two..boys had been there 151 and . 168 days, and two girls . . were there 110 .and 117 days .respectively. Admittedly the,se- w.ere difficult case to place. , Nevertheless , we are convinced that if. : ahl agencies involved within the county were working together as closely as they should, these cases could have been disposed of in much less than five months . The Pcobation Department General ,Organizationally the Department seems to 'be well set up and. staffed with-.capable and dedicated people. While ,we found some differences of opinion between lire and staff personnel and between management and union as to policy, operations and programs, we found- no evidence that these differences lessened anyone ' s cooperation or dedication. Through the medium of branch offices; the Department brings its services into the various population centers of the county. We feel that the hours of a probation officer must be flexible; it is- note an 8-5 job ;and the Probation Department' should not close down completely at 5 :00 p.m. Problems are not limited to an 8-5 period. Services should meet the needs of the people. The committee' s greatest concern is that the Department isnot adequately:staffed. to fulfill its purposes .. Probation officers are overburdened with -cases and investigations. It is, patently obvious that if there is to be rehabilitation of offenders ; the probation officers- must have adequata time to .devote to each , Probation Committee case The. number of investigations they are asked to perform should not deny them. that time. The work load standards set by the County Administrator are as follows: Investigations Cases under Super_vzsion per Deputy per Deputy per month per month Adult Division 20 130 Juvenile Division 20 80 Investigations are conducted by Deputy Probation Officers to develop background information on persons who are before the Court for specific offenses . The information developed is used as .a basis for decisions by the Court as to whether or not such a• person may be safely placed on probation_ in lieu of jail, and, if so, under what terms and conditions. The Deputy must search out every possible source of information, interview family members, friends , neighbors , employers , priests or ministers , teachers , etc . , until .he is satisfied that his information is reliable and suffi- cient to ufficient . to form a basis for an action recommendation to the Court. At present, in this county, he does this work practically alone with little, if any, clerical assistance. "Cases" are persons on probation who have been assigned to a specific Deputy Probation Officer for supervision. Some proba- tioners require more intensive supervision than others depending on the severity of their offense and the prescribed conditions of the probation .order. When properly performed, this supervision ,requires the Deputy to make personal visits to the probationer' s home and place .of employment, to interview other persons when necessary to f - Probation Committee learn how the _probationer is conducting himself in- the -community, to counsel hien when circumstances warrant, and to assist him in solving problems that arise which he seems unable to work out alone.. Investigations and Case- Supervision are very time consum- ing activities. Professionas -in t1�.is field consider. a work load of 35 to 50 Cases and 6 to 10_Investi .,rations per DeRuit,y per month to be a .proper work load. When such excessive work loads are assigned, as is done , in Contra Costa County, something has to "give" . Since the investi- gatory work is so important to the Courts ' handling of their cases , it is usually done to. the best. of the deputy' s ability. It is, then, the supervision of probationers that is inadequate .for lack. of time. and clerical assistance. Probationary supervision properly performed is vital to the whole rehabilitation effort. In preparintheir 1971-1972 fiscal year budget fcr sub- C)missi_on to the Board of Supervisors, the Probation Department requested the following additional positions 15 Deputy Probation Officers 3 Probation Supervisors 23 Clerks and typist clerks I Training Officer 6 Probation Trainee positions 1 Adult Probation Resource Officer (To develop' employment and educational resources for probationers . ) 1 Adult Probation Jail Liaison Officer (To assist probationers with jail terms as a condition of probation. ) 2 Delinquency Prevention Officers (For expert guidance to local groups and with special emphas.-.s on drug abuse, coordinate delinquency prevention efforts. at the local and county levels . Also to work closely with the Delinquency. Prevention Comni.ssion. ). Total - 52 Probation Committee When it was passedt alon; to .th- Board of Supervisors, the County Administrator rocofi-Gtended only 12 positions: 7 Deputy Probation Officers, 3. typ:is•- clerk positions and 2 Probation Supervisors. The balance of the request was left up to the Board as "policy" decisions . The Board of S-�jp�:-rvisors voted negatively on both policy matters tl-n-�s giving. th.e Probation Department only the 12 additional positions recommended by the Administrator. In rejecting 77% of the Probation Department ' s request, the Board seems to have paid little ._attention to some significant comments made by the Administrator in his submittal. For example: "As can be seen from the work load statistics shown above the activities for which the Probation Department are respon- sible are continuing at the rapid rate of increase that has been preti,21ent for the last few years . . . "In addition to the change in ji:,venile cases , the adult cases under supervision are expected to increase. more than .nor .?l cease load Growth due to the necessity of: picking up cases fl-cm the Intensive Supervision units as they are phased ou+-. " . . . the additional posiRvions recommended. ,should allow reasonable, although far from ideal, case load assignments , . .". The emphasis in the above quotations :is our own. This committee does . not agree with the use of the word "r.eason=ibl.e" . in the last quotation. As one example, a training officer has been reques4ed by the Department and recommended by others over a number of years without success. We fully concur with this request. It is the opinion of this committee that the full request of the Probation Department is reasonable and urgently needed. We Probation Coromittee recommend that the Board of Supervisors reconsider' its 'decision. We are faced with an anomol.y in this case. The Chief Probation Officer, is appointed by the .Court and is responsible to the Court for departmental , results. But the -Board of Supervisors controls the purse strings , hence, unless they act wisely upon the requests of the Probation Department, they can frustrate the efforts of the Department, and the Court, as well . This is a point at which the closest kind of understanding and cooperation, mentioned in the beginning of this report, is needed. Parsimony where the probation activity is concerned is clearly false economy. Crime and delinquency are increasing for a variety of reasons well known to all of us . Under policies favoring detention, the county' s facilities are too small to hold all. offenders. The cost to society keeps rising apace. Only a small percentage of those jailed are beyond saving,' but a great and coordinated effort is needed to save the others . Effective rehabilitation, education and counseling is the only practical way to solve this problem. The organizational_ machinery for this purpose is set up and working - but working at low speed. and efficiency because of the financial brake that Molds it . back. AN ADEQUATE INVESTMENT IN REHABILITATION NOW WILL BE PAID BACK IN REDUCED CRIINE AND DELINQUENCY IN FUTURE YEARS. OTHER. DEPARTMENTS AND AGENCIES The Juvenile ,Justice Commission The Delinquency Prevention Commission The Probation Committee attended the monthly meeting of Probation Committee these Commissions on September 13th. After their formal meetings were concluded, we reviewed the entire field of probation and rehabilitation with them and the role they play in it. We were happy to find ourselves` in agreement �%ith the Commissions in just about every factor involved an ttie i)ossible solutions.. This gives us great hope that the- permanency of the Commissions, contrasted with the imper_mar_ence of Grand Juries , will result in many advances in the county' s efforts to rehabili- tate delinquents and reduce their future numbers. While they are advisory commissions only, they are directly representative of the citizens of this .cournty and, as such, deserve the respect and attention of all public officials. Foster Parents Association We met on September_ 20th with the Foster Parents Associa- tion. Their records as foster parents prove beyond question their great capacity for love and compassion toward the foster. child. We are prepared to believe that the great -majority of Foster Par- ents have these same qualities in major decree. One must have the .g-reatest respect for parents who are willing to take a pre-delinquent or delinquent child into their home and raise. that child with their own natural children. They represent a tre�nendous' asset . to society which should be used to the maximum degree in rehabilitation programs . They are the ori_ ones who can provide a true home atmosphere for such children. No institution can do so. There are, at present, approximately 800 licensed Foster Homes in the county. Day care only is provided in 369 of them. Probation Coannittee Full time 24-hoar care is pro+ ,ided in 431 homes, two of which care for not only the child but a )arent also. The Foster Parents tee= that their services are not being used by Contra Costa COLInty to the . extent they should be. Once licensed, a new FosCer Home may wait as lung as twoy ears before receiving a foster child. Considering the conditions which must be met by the Foster Parents before they can be licensed, and the delay (sometimes 1-0 to 12 months) before the --license is issued, it is frustrating and . discouraging to wait so long to receive a child. The result is that some Foster Parents turn to ad oi"ni_ng counties to obtain children. Contra Costa County is the loser when they do so. In explanation of these delays , both the Probation and Social Service Departments point out the need to select with great care the home into which a child will be placed. They mus;. he sure the roster Parents selected can cope with the characteristics of the child involved, e.g. , they avoid placing a child who comes from a very poor home into an affluent Foster 11cme. Other factors such as religion and state of physical. or mental health must be considered, etc. The Probation Committee does not feel qualified to judge whether the Foster Parents are expecting the machinery of government to move too fast, or whether our government agencies are being overly cautious and simply moving at traditionally low speed. We do, however, declare ourselves fully convinced that Foster Homes are the most effective means of rehabilitating neglected and Jelin quent children. We urge our county agencies to move forward Probation Committee expeditiously and ' in the closest coorieration with each other , to utilize the available Foster Hames to tie fullest degree and to recruit and license "more of them: One handicap to recruitment nest be the rates of com- pensation paid for child care. At present these rates are : (1) $105 per irior,Lh for children through age 6 . (2) $110 per month for children ages % througiz 1.1. (3) $125 per month for children ages 12 to 21 . Separate .-approval of the Board of Supervisors may be obtained for special cases involving crippled children and others requiring special nursing or medical care while in the foster home. The Committee is unanimous in its opinion that these rates are too low for today' s level of the cost of living. ve do no.t presume to be expert enough to say how much higher they should be, but we recommend tha;;t -studies be instItuted .pr.omptly by the County Adminis-trator ' s Office in cooperation. with the Delinquency Prevention Commission to determine the basic costs currently b i0g experienced by Foster Homes and set .compensato_•y new rates accordingly. The supervision of dependent children. was transferr.fzid this. year from the Probation Department to the Social Service Department., the latter Department having the responsibility to . recruit and license foster homes. The Probation Department uses and supervises these foster homes as long as children under their jurisdiction are in those homes. We know of no cases where a child under Probation' s jurisdiction and another under the jurisdiction of Social Service are in the same home Here, again Probation Corunittee we have a degree of divided responsibility between county agencies which requires the highest degree of policy coordination, coopera- tion and understanding if the interests of the foster children are to receive firstconsider_a.tion. Contra Costa County Employees Association We met with the Probation Services Unit of Local #1 to learn their points of view of the probation system and program. They were most helpful and forthright in these discussions. We were particularly pleased with their constructive attitudes and genuine concern that right solutions be found to the complex prob- lems of rehabilitation. We recommend that the 1972 Grand Jury give them a similar opparturity to expand on the ideas presented' to us. Their contribution to us was -related largely to the problems of adult probation which they compiled in a 40-page brochure entitled "A Repor.t. to the Grand Jury on County. Detention Facilities and Operations 'of the Probation Department" . Time and space. do not permit our going into detail as to the con- tents of the .report, but we recommend to the county agencies . concerned that they secure a copy of it for study. A comparison of their recommendations and our report will show we are in . substantial agreement. Deputy Probation Officers A meeting was held with a representative .group of Deputy Probation Officers who were chosen at .random. They were Found to have probation experience ranging up to more than 20 years. By Probation Committee the end of the meeting we were convinced that the Probation Department is staffed with very capable and dedicated deputies . There are things they wish to see changed and they have understandable concern for the slowness with which desirable changes come about. So do Grand Juries .' They will see in this report -that many of the Committee ' s recommendations coincide with theirs. -- CONCLUSIONS .Throughout the . year the Probation Committee' s .interview.s and inspections have brought to its attention all the contrasting opinions and points of view of those most concerned'with. the probation system . in this county and its present means of dealing with the problems of crime and delinquency as the probation effort relates to them. The important question is , are we achieving the objective stated in the. first paragraph of this report? The efforts of our- . Probation Department and related agencies are succeeding to a deg,ree, but in the opinion of this . committee, it is a small, degree compared to what needs to be done and what can be accomplished. The county is spending large sums of money in the Proba- tion, Department and the facilities under their. management. The Department ' s gross budget in the 1971-1972 fiscal year will be $5 ,555 ,144.00. In this report we have made recommendations which, if adopted, would increase that amount slightly.. The question is -not really how much money is being spent, but rather how itis being spent - .on what kinds of facilities and what types of Probation Committee programs, etc. The committee is concerned that the County Administration is headed for still greater outlays of capital funds and .operating expenses in the belief this will produce the desired result based on present policies and -philosophies. After ten months of study into these matters, this committee has concluded that there is .too much emphasis on jails and detention facilities and not sufficient effort made in treat- ing delinquency by means that lie -outside. such facilities. . Contra Costa County is planning -to build bigger detention facilities while other counties in California and across the nation are utilizing more modern and productive techniques and programs . , Our County Administration seems to be quite stubborn in this matter of detention facilities and quite out of step with the desires of their constituents . Proposed bond issues with which to build a new jail and to remodel and enlarge Juvenile Hall have been rejected repeatedly by the voters, yet. the county has set up a non-profit- corporation under the name of the `Contra Costa County Juvenile Facility Corporation to finance and build expanded Juvenile Hall facilities. WE BELIEVE THIS TOTAL DISREGARD AND CIRCUMVENTION OF THE WILL OF THE PEOPLE IS WRONG AND SHOULD BE STOPPED. Unfortunately, pnd to the committee' s disappointment , the Probation Department seems to be in complete agreement with this action. They too, seem. to be enamoured of detention facilities as the most desirable first step in dealing with delinquent children. We do not- agree. Such detention is necessary for only .the most hardened and unresponsive delinquents and they are a small minority. Probation Committee r a The existing Juvenile Hall is large ler bu-h to house this type without fu.r_ther expansion i_- effectiv,.,, action is taken to provide for the other types in programs outside of the Hall.. The popula- tion of the Hall is down this year from last, and it can continue downward if these programs a".,--e utilized. There .h.as been no lack of id -!as and action r_ econnienda-. tions to both the Board of Supervisors and the- Probation Depart- ment by which to accomplish this. -result. Other counties and states have demonstrated that it can be done. The Juvenile Justice and Delinquency Prevention Commissions , The Foster Parents Association, the Employees Union, various private agencies, past Grand Juries . and even the Probation Department ' S own people who. live with the delinquent probationers daily, urge that bigger and better deten- tion facilities are not the answer. All of them have repeatedly submitted very specific program proposals to the Board of Supervisors and Probation Depart- ment i.nvolvind new and tested ideas, which the Board and Probation Department have consistently ignored. We can only conclude that our county officials are out of touch with the. recent progress made in these matters and too set in their ways to change quickly enough. to meet t'�e present crisis created by rapid population .growth and the concurrent rise in crime and delinquency. We suggest to the citizens of Contra Costa County that unless there is an immediate change of direction in the handling of delinquent children in this county, the present County Adminis- tration should be replaced by men with deeper perception, more flexibility and greater foresight. Probation Comrnitree 0 L116en5ing Division COUNTY OF MONTEREY Courthouse WELFARE DEPARTMENT E3�4 hr P.0. ox 299 _ xx�cz s ri cxa z�vc SALINAS, CALIFORNIA 93901 Wit-L{AM li• LEACH, DfR>G'fUR PLEASE REPLY TO ADDRESS CHECKED: August 26, 1970 Mrs. Esther Redel � � .ti.Z� �t-`=i Foster Home Coordinator 1L 6 Division of Children's Services1 11910 Contra Costa County �1U G Social Service Department SOCIAL SER'dIC ­-v T�r1ENT, 85 Cleveland Road . CCS-E•C Pleasant Hill, CA 94523 nDl � t,� 4 Dear Mrs. Rede1: NOV F, 197® ; Please refer to your letter of August 6, 1970. SOCIAL SERVICE DEPARTMENT DGS•E-C 1 In order to reply to your questions regarding the three new categories of foster i homes to be developed in Monterey County, I have included copies of descriptions of such homes and a copy of the recent resolution authorizing these by the P.,lonterey County Board of Supervisors. You will note that these homes will be used for de- linquents only. To date, we have .not licensed any. Crisis, Group or Professional homes although several are under"study at the moment'. "he Probation Department has requested that any potential applicants or currently licensed foster parents inter- t ested in any of these programs, be -referred directly to them for interview. The Probation Department has further stipulated that persons-interested meet regular foster home licensing requirements before they be considered for the special categories. ,Since all three tyres of homes are yet quite new to our own county, there is no more �~ information I can offer you at the present time. As our programs develop, you can `: be assured that I shall keep the Bay Area Licensing Supervisors Committee apprised of our progress. j Y Thank you for your interest. We wish you success in your county's new responsibility. Very truly yours, s' WILLIAM H. LEACH, Director i i - (Mrs.) Jean M. Phan I. Social Service Supervisor I ,. Licensing Division J1•P:ib 4 Encl. ' II �. I �� r AidG 2, NOV 1970 ocL�� ��R'✓;C,� E, ra ,., RST � SOCIAL SERVICE DEPARTMENT, DCS.E-C „CRISIS" MMR r X11 S 1 (For Pre-Delinquent Boys and Girls),. Each year the N.,nterey.County. Probation Department has approximately 1400 or. more boys andgirls zvferreo to their agency for the two .disti.nct categories of "Beyond Control" or "R=away". Of these referrals, approximately M or 1050 boys and girls are generally lodged in teoporary detention at the Juvenile Rall'by the .'various police agencies. These pre-dslinquents are usually placed in the detention facility because a crisis situation has arisen in the family home and because an irreadiate solutim car=t be obtain-ad at the time, temporary detention beca,.as necessary. Lader Juve- nile Court. L •i the Probation Officer has 48 hours to work out a possible solution between the youth mad parents, etc, and in many cases such action does allow a large percenta e of the detained children to be returned to their own h=as, either an pre- court probation or mz.ely to wait for a more formal Juvenile Court appearance at a later date. M.W or these so-called "solutions", which have been developed quite rapidly by the Probation Officer and because of tuna limitations, 1r.ck of proper in- formation znd lack, of proper parental interest and contact, soon deteriorate and within a matter of d::, s the child is back in temporary d-2ention. Normally when a child is held in detention (following a detention hearing by the Cozart) pending a formal Court appearance, the child remains the full period of twenty-one (21 days or, so. It is .felt that by developing two (2) "crisis type" foster hazas in the Cott7nty, the Probation Dapa.—,w will be better able to reduce costly unary detention at the Juvenile }'.all a d also develop more ccsiczte and 1..^.stingprogi for the y•uths, .and their parents or relatives. Present Juvenile Hall costs are $8.96 a day which . certainly exceeds thz proposed daily costs for this spacial type foster horn. In ' addition, if a case must later be presented to the Juvenile Court for a formal hear- ing, many ,other additional costs must be added. It is proposed that the two (2) crisis foster homes be developed to accept frau the Juvenile Hall, such boys and girls who do not need the secure type detention offered by the Juvenile ha cilit� y. Certain oys ani girls woulcs ti I be maintaane�c in the Juvenile Hall because of more difficult and acting out behavior. Police agencies would continue to deliver their "Boyand Control's cases to the Juvenile Hall and the screening process would then be done by the Probation Department. It is felt that in most situations short term placanents would prevail but perhaps . . in certain cases, a more lengthy period would be required to develop an adequate pro- gram between parents and child. We are proposing a daily rate of $5.00 per child with a placement limit of thirty (30) days. Such a lion,e would have a limit of five (5�` children and no subsidy would be allowed, that is , a home would only be reimbursed when used.. Such hones would he selected by the Probation Department after a:careful examination'was to tezriine the aster parents'�es^ires to accept suc.}i children at all times and above all, to examine their abiliti.cs to work with the children, their s parents -and probation officers during the cris.islperiods. Arrangements will have to �L made with the local county welfare department to'I cover. the licensing aspects. It is felt that there are foster parents available who would be interested in this type of challenging stork and who feel that they could provide an excellent short-term place.—%nt service for the (.ointy of Monterey. In the area of financial reimburse;,nt, parents would be obligated to rei..riburse the County of Monterey for eithMr the entiro daily rate of $5.00 or a portion of the mount as datermined by the W-part=ants` Finance Officer. Again we vrish to e phasize that such a progr= should help to alleviate the S population figure of pre-delinqu~~nt cases uaintained at the Juvenile Hall and thereby reaica the daily placerz-at costs at that facility. In add.itiam, it � d all(y.v the PnZatica Officer an opportunity to do SOMI early casework in' a far different setting th"i exists at this time. It is felt that many disrupted parent-child ralatic,zhips could be strengthened through such an approach and most certainly could re the nur.!>er of such cases that are mi appearing before the Juvenile Court for m for=l hearing. Be lore fate Bea (I of Slt�seraresore ars sand for tJle C.oftnfy.ol Monterey, $tuf Iof Cali f orni a , .. Ch:�n es in Fort„r, dome Rates ~� `,Approved; Administrative Officer toDr iw Resolu'tion ft?r Board U Approval '* ”. The Administrative Officer files with` the Board the report prepared .in 'conneatlon with Foster`Home Aites in Monterey County: " The .Board. reviews the recommendations of: the Administrative Officer F. and Probatt.on Departmen RepresentatiVPs df the' roster Parents' Nssociation are precent'.and ,heard. ori the batter' of .the p Ioposed rates. They,are requestLng a ,raise in'.rat;es of x.15.00 per: mto.'cover the cost { of liwinrincreases. i Afterdl scuafl,1on' :Suoei•visor, Branion moves 'that'. the follow s rate, schedule be 'app' --d and tree .Adviristrati.ve Officer directed: } 1 ' ao 'draw'alie nec;essar� :reso3ution for• adoption :oy tY.e Board'a Bt pular 1;'ostcr, Fiome�' rflnt trru �i yrs. of age ;�?0 per mcg. thru: .12. yrs, of .ag 100 '•per. mo.' 13 thiru 18 yrs. 'of age 110 per mo.: Spealal FostCr F:o^es;; for delinquents only) a "Crisis" home. !; W00 dally wlth 30 day:!placement lit-nit. "Group" hones 200 per mo: 1 "Proses ional Parents" H^mss; 250 per mo. r. d 'I , J, per chit • `•�merfency shehter rar_ . No o.han.-e in the present schedule of $8'.00' per day not to exceed 10 flays 6e ular foster home specia; ratei. 125.per mo: : The motion pis,` seconded `.by Supervisor Church, and unanimously caz°ries. COUNTY OF MONTrnEY, as l t 'STATE OFCALIFORNIA. i I,E�tMET G.McMENAMIK County Clerk and exofflklo Clerk of the Booed of Supervlsm;+of the t ounty of Mon 1 terey,stole of Caiitorn,la,hercbycertify that Cie foregoing is a full, true and Correct copy of an Original order of said i �. 1 "Board of Supervisors duly made and.entered in the'tninntes tliereo!'at page,..:.. �-.. of btinuta_Book .z ._..,on the . _day ef• • June, ii;M.mnd-now remaining of record in my office ?. _ _�_..._..... rune 70 Witness by hand and the seas of sat Board of Supervisors thIS_.. r.d._.. day 10._..... 3 i i 1� LMM ST GI?&MENAM7N: t County,Clerk and ex officio Clerk of the Board 4 of Supervisors, County of Monterey. State of be CLIRK 08f 4 ' BEFORE THE. b 0 A R D OF SUPERVISORS OF THE' f COUNTY OF MUNTEREI, STATE OF, CALIFORNIA RESOLUTION N0. + EvAublivhing tha 11aximurn Monthly .Ratca-to be paid by thc+ County 'of. Mouturay fur. thu. ), ! Suppurt of Wards and Depcndorita of Juvenile ) , Court. arid for Needy, dependant or Noglocted ) Children in Foster or Boarding Horass. WHEREAS, Suction goo or the Welfare and .Institutions Coda authorized thin Board to oatflblish maximum amounts which tho Juvenile Court may order' tha• County to pay for ouppollt, cnd'maintenance of award or a dopendunt of -,the Juvenile Court, or for a minor person concerning whnm,n p:;ti tion has been filed in accordance with .provieiono of Chap- , J tar 2f Wulrera.and Institutions Codo,' and WHEREAS, .this Board Finds thE3t n maxlmu;n rate should 'b a sot for ' the carer needy, d�pencierit .or' negludtad d►iildran in foster or boarding ho:nas; J NOW, THEREFORE, BE IT` RESOLVED that: The following achrdulc' ba, and the sans is hereby adopted and ' 1 to ba efrectiva July .l, 1970. co the maxirium monthly rates to be paid by the Coun'6y, including Stota acid Fuderol ;iartd.cipation, for the support.- and upport and maIntenancu of: (1) Wares or' dependents of the Juvenile Court of Monterey County + v eorrimitted to or ploced in foster a. boarding homes, by court ordurs, and of .other minor persons concerning whom petitions have been .filed in tho Monterey Count JuvcnI a Court In* with . y y proviaions of ChEjpter ; .2 walrare and Institutions Code, and for.whom temporary, emergent care t io diracted by court order,, .end (2). -Needy, dependent-or ,ncglected chi,ldron receiving assistance ` through the Aid to Needy Children Program inleny private foster or board- in home.. ' Regular Private';Fostrar. Hamas' J Infant though byears; old, $90.00 per month Ages 7 through 12 BO.00. Agas. 13bed. above 110.00 Emergency Shelter Cars ' Not to exceed 'ten' days, per. di am R.00 far dio•7r 1 1 , ` Special Private :Foster.Homes (Delinquents Only) - ' ...,Crisis Homo, Not to exceed 2 hornas 85.00 Per dicta' Bos Child Not to exceed 5 chil.dren 'per ,hon3 t•' E :Not to,ezcauld 30. days. •par 'child, pot Biers - , i c � .�' i 1• Ili , •' -. � �� Group Hor.e $200.00 per .month, per child N r. 4 homes n to a coed e� , Not o Not to er.ceud 8-children per homo.i 1 ;� Professional Parcnts home $250.00 per mon'th por child Not to excued 2 ho:pes f: Not to axcoud 2 children 'per horns a f :VC. IT FURTHER RESOLVED THAT if. the Chiof Probation oroicnr, con, ' t corn I g' wards of the Juvenile Ga,urt 'or min Ir persona _concerning'whom a petition has hos,,, riled, or' the Public We1ure Director, concerning i nuedy, dependent or neglected children, finds that there i'a need for ? extra care and maintunahce in a regular prilvate foster .or. boarding home t berauso or such ward's, dependent's or needy child's unusual physical, rtientol a'r ambLional Condit-iron, g monthly' rete not to exceed $125 may be BE, IT FURTHER..RESOL�6. that if a ward, minor or needy, dependent ac4�� or neglected child requir'do,speciul .care iR a boarding or Footer home and ; b, not contemplated in the rates Ptero-in provided, the Board of Supe'rviaors eau+ may authorize a highor rata upon tho rncommendation of tho Administrative { Offico'r and the Chief, Probation Officer, in casooi ,concorning Words, " . , 4 j dependants of thu Gourt or minors .for whom patitions have boon filed,' or•• :- " 7 the Administrative O F.icor. and the Public Welfere Director in the case.' ` ' ' of needy, dapondent !�,r neglected children ;. . •� BE I1' FURTHER ��ESOL'VED •thut a foster parent shall: be advised within ten doya'of riling a request for a spacial caro rate of the i : y docislon of tho department hoed end the Administrative Officer, and that ; / Duch foster parent may appeal ,the decision to the Board of Suparvisorao• , ' BE IT FARTHER RE&04UE�?' that with ouch requ®et to tho Board for / • .. � � ` ' approval of a rate above theustabl:.sh=_d schedule, the Chief Probation Offices shall include'.s 'summary statment of (that part or .all of the up t Ji keep costs which willbepaid by responsible' relativo(s) or any other r r source; and further. that in each case where tho' county ie to beer any of tha cost,, the request shall include a summary report of 'the dater urination of inability of relatives; or others lieble,. to pay. ; ! / BE .IT FURTHER RESOLVED that within tendaysafter the end .of each month the ProSatiom-Department shall submit a report in,.writing' 1 to the Board of Supervisors with a copy to the Administrative Officer, .:.said report shall be in that form approved by the' Administrative Officer, ' which includes tho:number of and kinds of 'special router human used during. the months, the,.n,umbor.'of children in:each, the total paid- or to 6 bs.paid to each home and the 'month's total reimbursed or to be reirburaod.g ¢; by othorn. . 'Tho r.eport'i3hall alao'.contain the accumulative totolo paid to each holnp through the'i'riscal year and nhall include in nouningful form a the totals, both mont ly and accumulative, of'expendituroa and ruin- burcamento for placerf:Pnte in .oueh as licanaed -chi ldrdn'a institutions, •' ) J maternity homes, parochial schools, .mantel hygiene roster homes and other ' couritios' boys cumpn: ranchas and schools. The report ehali. nloo 'includa the month's total nu/nt�ar of d` mission to, diuchalrgao from and average daily ,nttendunco at both the Juvenlla Hullandthe Natividad Runch. ;• ) BE IT FURTHER RESOLVED. that it shall be incumbent upon the Public WeICara Director and' the 'Chidf Probu.tlon Officer to promptly make a- . voilabin for each child placed in a foster home the nocuosary clothing in accordance with that basic list of,ciothing:' as recommended by the weirsra ' and Probation Departments arid approved by the' Administrative Officer.- BE IT FURTHER RESOLVED that the Public Welfare Director or the Chief Prubation Officer bholl arrange for each* chilli placedin• a foator. � ' t home to be given•a ,iTedi'cal axamination, unllso oubotuntiol evidence 1 A oxioto that such an 40x11mInation is not noadpd. BE IT FURTHER;RESbLVED that the Chief Probation Orficar be di- rccttl to .report to, thaiAdminia.tr�tiva';OfPicor ell crd'ora made 'by the "' r Juvenile -Court pursuantito Section:902 of the Walfare and Institutions Coda which''oxcled thu•maxinum limits ant by this rasolution aven'though �. 'Providing that the 'averago 'be paid, to the, Probation Officer from the minor a estate, .eurninga', 'or property, or by tha minor's parents or , guardians; Caid officer -ahall also .report to ,the Adrniniatrotivo Officoa• all volunteer' psyments.•I r BE IT FURTHER RESOLVED that Resolution Uo. 68-307 pasaad and adopted on the 10th day. of. September•,, 19GO baa and the oome ie tioreby ro- ! dcindad. Cnurca l ON MfOTI'ON OF Supervisor eocondad by Supervisor Tssvor the foregoing resolution is adoptE3d this de oP J"Q 1978 . by the. following veto. Y ASuparviaor 3 •15i trfl0arnottio &dth 6 bran®OAoYES: i NOES:. . tones. I ABSENTS , � I HEREBY CERTIFY THAT THS F02CGOING DOCUMENT IS A TRUE C^.P'( TPC CR,G?":.;LGI`f ME IN MY 'FiCE.. i DATID EM,NLT /i:n_•.., ^./ 1.:+:7 ::CRr; A,•0 [X•OFfIL10ClE RK I OF THE Ae Of SOTc Rv:SGd: A,CNTiRi COUNTY.CALIFORNIA I 4t ' , rt i �• - DRPIFTY j it iA )UP„ 110S,I►.I: 1 xxla—, F - s rP 1 Pre 1Je 'r � 'n� a ,�.4 o >, ri �n I c I1 { h e t u k i z a n • s alid Girls) .. • Most children in regular foster hcrie placcssICIst present no more than moderate behavior prob1c=s: and in Such case~', most c:.iAldre:a progress better when the faat►ily, g�u�� is kept sriall. ' Group hosze. placement is designed to serve the clsild wino cats not remain in his e-.;n ho:rc .but svho will benefit marc fry placement in a groilp setting within tlhe:.cc:.z=ity.;: 'than frcan regular fosterhaw pla.cc:r nt or institutional eme placnt. . This typo of plac,=.ent is cons iclared.necessary to work with children. with. . ahoLional r..nd behavioral problems which handicap they in '•thoir =p=ity to live function P_,�:rly xs, t1%eir o•,,rn co mcnity. : A1any chi.ldre.n:a� p1=zd in..this `c, tegory bo'Cause of life expeb iences at anearly ale; Z:. Ssvob-e: W7t'trl.iG s within the family unit ` able envirirvr.cnt -4. 'p-o sonality .which 'causes "UM or her. to b 1"Ir.`uIy Sewsitivo `go I • 9 w �- r.y .. { .. 5 .. 1 The usa �oa. wt�ap has;es ss reCA��zed today xr,� t'�3 s..;.c,�d .o.. ��i.Id c.wif'are .as .a "Ccastru-Ctivi, .inv Iuablc �:cidition to thevarbc�; �..:�;.�.' �.��Ic/:;, toren 3 child's ' out-of tCZ'.0 � aCZ _ re �T$ �^ nz . �.,...., ., (,,^Q .,� c� � � r) ^94 �'IJ ��.°Ja a,Id�l�r�• 1710 JtC•4� AJ�+�,:.�ld �+•.�,..11r �J. VV`....:r�ws ►M b.fN•V -relates' •blat�i5 1 . .•A CIr11Y213 C:. irxi-c se 'in I3 ed i.ox cJiild-,-en for pIac ::,_.a ; g:v: i►G..'�. Gsriiljl I»,8S`, I for opti`m� ,s c.fce�9ti ..n irsti.^.a2e part of file cc:,:.:i;1:�,�, located c?e:� to schools,:.' . . ChL6a"C}i�?S, clubs ti r f, .`illy. S t is felt that this vve7sViCr1 ,ci�C::. L.�r CliTllty, respGa ' lbzl:t4y v::�I 11 in, �� Care of its' Own c}2cIi1'71. ! czar' a c:::�n�c:c✓ when ale i are rc;ao�iad. "re* eC:GZi"'f ue:d .15011 ed !'C71 the nonrzl f�i3y C :V.41vS of QUr,.: :`. CaTduUtlit3Q.�i. YGz::�^, :�aiG C:w�.:0`C_:b4 sr t theirI7fI1TT3C-;<;S i".Ci i�.— bilitles F wade llvin- 1}1. v-.cL:� but must' receive It in A Kra-"a,. cc:—. `:y SCZ�i:: . S It is pila�.r:��^. `cl3�.i YG::Y' (4) " 21�11}t" fost�: hz�.;cs bo dp-tIa2G;�:.d 1=a in K";;2terey CAtII�t ' for 6~st: :..�w.: d�i Qa �� o $ -yrs. 7 ,• !_ t, } e pr'.. 4 lirquent and/or .d_'.1 ;.iwlZ� ,�v� �..... �e.Is .i..�1 �.�1.. i Probation LZ:p :- �:s.' : Chdldren placed in the gzoup h=.2 ett aro :;�. .:g t::e juris dictiaa of. th C-"MZ7. Probation E�-_,par►ment and are pl occ-i: th--ro by &:o J',,,rreni,le- Court for care rand t .:�.c r:Zt T'r; children in these* h aes w ,aid .ro:..ally tte;4 .local pubic. a' schools and pc`..cf a .;: In other cc:`r i-u ity activi'taes. i�1c ma;,w�ly. plr:^�,:.nt for this I ,• u141 $200.CO url there wouldtype of ho. wolimit of ci�; t_ {g) ac for per hon,Nacs 12 throu<,h''17 years. Arranganentsskill cliildr�It ' have to' be n::d: with tlso local ' . county cover the licensing aspects &.d in certain situatiais, foster parents may. re uire additional advice alld help in securing the isec;essary use pernsitS. Admission criteria will be ueticI0te�A I,\ t;se Probation Dapartr nt to guide in tile. I 1 ;selection of cl;ilcircn .for these �;rGq) holes :olid foster Barents sraLs,4. be wiling. to ! � accept place--ate regard4:ss of race, calor or rel gioci. Each grot�q) hui�e will bac coli- ! sidered on an individual 1,asis' by -t ie Proi;ution Department so that the placement need` •of tie Probation Department s.say 1imi,eri\• +c't. Certain hcxnes will periuips develop l different activity programsiwi others, w;iich sill thereby provide th.e Probation De- partment the opportunity to "better T'i;sce a c;,.ilu as, to his or }ser specific noc6s". IIs a selected ''group' hams,/Thoth I•ostcr porents.:'.i 11 "c` .requires: tq be in the ho;,�• oil a full time basis so that •ail auc.;cjUat „j�i(7l;r.U;l ;iIM' !ie carried ons Its special siLuati�,sl;� j ' one parent may be allowed to work outside. the holne P-rovic ci that adequate adult paid l staff will be available to maintain ,an acciptable su;rervision ratio. Group hone parents will by required to participate: in an oto-I LMIng training program so that they may properly handle exceptional emotional aqui betnavior problems. They will be re- quired to meet urith the child's natural parents as family visitation will be a neces- Bary part of the program. Individual and group coi�elling will be a necessary _ingredient of tt:e group hare'program with foster p yremts and Probation Impartment per- �onnal providing -these services. Grcx2p coaisellin4, sessions may include the parents i of the children in placa-nent so that overall fm►ily ctlange. may be ^ u lisped. The group fostar here progrsm can most, certainly be used as an alternative to the i re expansive institutional place-ment. Ther Ie is no short cut to successful treatrzont, thzrefore placc,= in a group hares could be for a relatively shoat period of time or a lengthy period.. . It appears that these group hc;,-.ss will provide an oppor- tunity for clhild::a to live in an open setting an,4 in a therapeutic e-..-vviror -nt while foraing new relationships with adults and other children.- In order to achieve the security so that. he or she might reach this goal, the group hero foster paxentst be parental;. rr.:. .ls who will provide warmth and unders2�--WL—ig, and h.avo the ability � to set consistent and realistic limits. i . 1 i f i , I 4 i PROFESSIOiNJ 1. PA_Pj*N7S FOS'MR IMES OCA pCS E -C (For Pre-Delinquent iutd 1)clirrliiM�nt Boys and Girls) The ideal solutionTor all children needing emergency care would be to retuni them to their own hexnc, provided adequate care Widsupervision could be afforded to them. When this is not the case, the Prollationl Depammont holding facilities, such as Juvenile Hall, trust be used pending; Court adjudication as well as emergency shelter homes for de;pcndent children. After a Court appearance, a more pernwnent type of placement must be secured. The desirable number of children in any foster hcrw depends on the needs of the child to be placed and thereby the kind of cared required of the foster parents. It is necessary to evaluate each place=nt in the areas of the. foster parents' ability to work with a child having certain types of behavior, e: notional and physical pro- blez. LIt is frequently accepted as a rule of thumb, that vacancies should .out-nunber place;wnts by S to 1 so that a greater range of selectivity is available.-I Training of all foster parents is necessary to reduce placermt failures as fail- ures can be disastrous for hotli child and foster parents. Extra efforts have to be made to work with first time foster parents so that they are able to cope with the nu-rwrous problems of acting out children. Regular foster hoe care mets the needs of most children as they are able to. receive. protection, care and guidwice in a safel, comfortable ho-,rw setting. On the other hand, there are those pre-delinquent or delinquent bays and girls who present such emotional md. behavior problen►s that a different t,/pe of plac&rznt must be ob- tained.. Institutional placement outside of the county is or,v avenu.: but an extremely expensive on when rising placement costs are considered, The County, of Monterey is presently paying foster parents approximately $95.00 a month to carte for acting out teen-age children. No distinction is made in the paya;�= for care as to the t•pe of child that is in placen�-_nt. Certainly the monthly $95.00 is not paying for the "super- vision" portion of the placement but mainly covering the physical naeds of the child. It- ' is proposed that two (2) "professional parent" homes be developed at this tine to accept placement of pre-delinquent and/or delinquent boys and girls from the Proba- tion Department. Such a placement program could he used as an alternativeto more expensive institutional placement. Uildren being, placed in a hcra of this type would be those who are presenting extreme emotional or behavior problems which call for :m- usual abilities on the part of the foster parents. t;liat is dare with certain children now will:make a* great difference in tine iiext 5 or ;-sore years as to whether these young; people ,are in the main stream of our society ,as 11 auequa:te citizens. The proposed monthly rate for t;ic "professional parent" hones would be $2S0.00 as it is felt that by taking difficult and liar.: to place cases, they will be. financially. compensated for their expertise in s.icl: .;iifi�ult child care matters. If such parents are properly paid for these placements, t i io rein►,)i 1 i tat ion of a delinquent boy or girl can be accaTlisheu at a muc:rc lower %�:os*L th'al 4 it:stit.utional placement and probably { in a shorter period of tire, Fostvr. , ai-ciit od ties category will be required to meet j i certain Criteria set i�) by the Probation lkparr_ment as to education, continuing ed- ucation, emotional stability and ability, grid other measurable attributes. td)ove all, sufficient ezoticiial anility to work wi th a difficult acting-out teenager will be one of the prime requisites. Such a har;e would have a;�imi't o1 two (2) c}iilc}ren and placement would be made only after a formal appearance in the Ju✓mile Court and careful screening by the Probation Uepartmant. Foster parents will be provided training in various, areas so that they may better work with their placements and in fact, professional parents will be required to a6nowledge in writing, the proposed plan of accepting additional training by sta-ff r,-Tbers of various agencies. Such hares would be selected by the •Probati(~i D,,pa.�.,,nt after a careful evaluation was mad---of the proposed parents and thein quaalitics. Arr an cents will, have to be made with the local county welfare de- partm-ont to covor the licensing aspects. In addition to receiving couLselling service frau the Probatic a Bapartmant staff, arrange=A- ts,will be ri;.de to have a child psy- chiatrist provide ccasultation on a regular bzsis. It is hoped that such services may- be secured through the local ental Health Services. i At the present time the County of Santa Cruz. (Probation Depar=znt) has been i grfanted a siTailar typo progrm which allows for 5 such "-- as,. for girls cnly, with a 2 girl lindt in each bore. `Ihe monthly rate is $250.00. . In view of spiraling in-sti- ? tuticn costs most county probation departments areattc;zpting to develop a type of a "professional type" placement between that of the regular fostor. he and a'private institution, e t z i . f 14 YOUTH AU"1'110::IITY QUARTERLY FOR �LI Uh GIRLS �,S By ESTELLE J.TUYL ER' Mrs. Turner is a parole agent tcitl:!the Community Treatment Unit in Stockton One of the more revealing exp–criences in tllt- develop- ment of the Stocl:ton group hone, whieh Mrs. Turner Inod- estly omitted in }ler accoimt, occure;l on May 11, 1938. On that date, the author was ]harried to James Turn--r, a}so a California Youth Aumority parole a,,ei:t. Acti_rg as brides- maids were the girls about whom i Irs. 'Tin �.:ites. That incident, perl?.:LIS more than the at}lers, Vlustra':ed the close relationship that develope"I between Mrs. Turner, the girls, and the operators of the group home. For the past year, the City of Stoc1_ton has been the scene of an , unusual and promising eiperimcnt in group living. , group of teen-age girls, paroled by the California Youth Authority to the Community s Treatment Project, has been planed in a rambling, 12-bedroom, 6�- year-old home, located in an olc'.er residential district, and operated by a man and his wife who have turned out to be uniquely qualified t for their responsibilities. The girls have been exposed to an environ- . z met and program conducive to growth, yet protective enou;h to g; give them a feeling of bel_on-mg—a vital ingredient in helping them overcome their problems. t The Community Treatment Proiect in Stockton; being experimental, #, provides many treatment opportunities to its workers. Sharply reduced caseloads of 12 to 14 give the agents time for intensive work with - ! wards. There is research time for feedback and discussion of treatment r implications with researchers and other staff members from Commu- nity Treatment Project units in Sacramento and.San Francisco. The I-Level typology. system provides agents with a meaningful measure of classifing youngsters according to their social perceptions and de- . i velopment. It provides a matching process of determining which agents are suited to deal most effectively with certain hpes of young- F: sters. In the case of female caseloads; however, the number is small and the agents handle a variety of subtypes and levels. Despite the advantages of this hind of.pro;ram; the age-old issue I' which faces the practitioner everywhere and cannot be minimized is how and where to find effective placements for seriously disturbed adolescents who cannot return to their destructive home'situations. • • YOUTH AVT}fORITY QUARTERLY 15 The Arrival of Caroline In August, 1967, Caroline, age 14, of Mexican-Filipino nationality, found herself facing a period of temporary detention at the Northern Reception. Center and Clinic in Sacramento following a month's run- away from her fainily home. She had been released on parole in N�lay and had lasted but a short time in placement with her natural mother and stepfather. Her history included 13 runaways, promiscuity, drinking, and a strong identification with a delinquent subculture. She was sullen, angry, and extremely distrustful of adults. 'The Arrival of Doris At the same time, Doris, 1.5, part Chinese, and her baby, Diane, age S months, were l_ivin- in a foster home in Stockton. S�.iuervision there was lax and the foster parents were involved in marital difficulties which were affecting the girl so profoundly that the agent felt a change of placement was mandatory. Doris was attempting to attend public school and care for her baby, posing insurmountable pressures for her. Her natural home situation could best be described as a "zoo" type of atmosphere, consisting of a highly neurotic, inadequate i mother, who was receiving welfare, and several small children, the youngest being the same age as Doris' baby. The.mother was having an affair with a local motorcycle club mcinber who was approximately ten years her junior in age. He and his fellow club members and their motorcycles were constantly parked at the family home. The mother was frequently very upset, and could be heard throughout the E neighborhood, shrieking and screeching. Having all her life viewed her mother in action, Doris had herself developed a violent temper, vyith a profane vocabulary to match, to protect her self-destructive and insecure feelings about herself and about life in general. Orig- mally, she was committed to the California Youth Authority for blue sniffing. The Group Home Parents The new group home in Stockton was assigned to the care of Roy and June Nilson, both in their mid-thirties. NIr. Nilson is a high school graduate, employed as a truck driver. He is soft-spoken and gentle, yet possesses the strength of his convictions. Besides driving trucks, he is an .experienced welder and has served as a police officer for the City of Stockton. This is his second marriage, into which he brought his two sons from a previous marriage, ages S and 9. June is an attractive, effervescent housewife. Mrs. Nilson. has three children from a previous marriage, one of whom is married and out of the home. The present family group includes the Wilsons and five children, the youngest, age 4, being born to their union. The `Nilson youngsters range in age from 4 through 12. The marriage is solid. Their marital relationship is based on mutual respect,love and trust. f, II e: 16 YOUTH AUTHORITY QUARTERLY For some time the Wils, had been 11-11 crested in providing a group home. Particularly since me ding into a 32-room house in Stockton which once served as the Stockton Mind Center. . Mrs. Wilson happened to know a California Youth Authority parolee who was placed in a foster home tllrow,li tl,c Community Treatment Project. Through lum she obtained the telephone number of the Project office and called for an interview. The Wilsons had had no experience and little kmowledgc of delin- quency. They were warm people and seemed to display common sense but, more important to the parole agent, they possessed a real desire.to include youngsters in their family. Thcir home was quickly established. �( Caroline arrived around the first of September, followed`.three days I later by Doris and her baby. The Wilsons often. felt discourac*ed and frustra ted about being , foster parents during those first few months. Probably the most difficult t things for them to understand were: (1) If their sincerity and interest were extended, why were these girls so distrustful and afraid to form relationships? (2) Why did they need to test even the simplest limits?. (3) 1Vhy were these youngsters so unpredictable, acting out even. ' after they appeared to be adjusting relatively well. As the Wilsons began coming into contact with the parents of these two youngsters and viewing the destrl�ctive qualities frori� the homes these girls came from, they began making some sense out of, the girls' behavior.. During this tine of the NVilsons' development as foster parents, the agent and treatment super�•isor of the Pro;ect spent a great deal of time interi; etirg, training, incl acquainting the NViisons with the I-Level typology system and probably most important of all, giving the Wilsons the support they needed. In the early sta es of developing the group home, the NVilsons were forced to make some ac'justments. They 1-earned they could net expect the wards to respond to requests and limits in. the same way their own children did. They were forced to become more flexible and tolerant. This was especially true of Mr. Wilson wiio finally began to accept limit testing as a process of adjushnent. Because of the in- consistent messages the o-irls had aiwa's. received in the nast, the , `Vilsons had to become ext-emely consistent in following through when making a promise or taking a stand on anlissue. The tVilsons learned to , -work very'closely v.ith Ole agent and Proiect staff as they found the , girls prone to play one adult against.another. At first, some serious problems trose. .�Caroline stayed out all night on several occasions, dramk when the opportunity arose, and continued a strong affllation with her delinquent peers. Later, after a brief runaway and during a restriction period from dating, she began to develop a closer relationship with the N�'ilsons and the Project. Doris began "warming up" to the V''ilsons through their mutual attentions to the babv. Mrs. Nilson has helped Doris in the area of , child care and training, showing her the.importance of accepting the ' responsibilities that face all mothers: ti , I R YOUTH AUTIIORITY QUARTERLY 17 ' I The Arrival of Clara Clara, a 16-year-old Sioux Indian girl, was added to the home later. She vas dia nosed as a dependent, immature colifornlist. Following release from the Northern Reception Center and Clinic, Clara had been placed -,vith her mother. The placement proved unsatisfactory, as the mother, awell-meaning person, I .eked the strengtll to control her children. Five older brothers and sisters have all been in difficulty with the authorities andseveral are still either on parole or in institu- tions. Clara's father is a chronic alcoholic and spends most of his time in the San Joaquin County Tail. Clara's offenses included runaways, promiscuity, and the continued use of beer and hard liquor. With Clara's placement in the ;roup home, an important issue arose for the Wilsons--Clara's numerous relatives wanted to visit constantly and would appear on the doorstep of the group lioine at just about the time the family was sitting down to dinner ori preparing to turn in for the niglit. Visiting rules were set up which allowed for visitors but with controls to permit privacy. The restrictions included fre- quency, length, and specific permissible times. The Arrival of Shirley Shirley, a-bright 17-year-old Negro youngster who had been raised by an aunt and uncle in the South, and had been living with another aunt and uncle in Stockton, was badly in need of placement. She had , been released from the Clinic to her aunt, who had proceeded to convince 'her that her feelings of worthlessness ,vere well founded.. Shirley was told, for example, that she was responsihle for her mother's death at childbirth. In actuality her mother had succlumbed to a kidney t. ailment three years after Shirley was born. This feeling of guilt rein- forced Shirley's neurotic mode of adjustment over the years, Being = extremely sensitive and feeling very .inadequate, she would often fall into a depressive state. Her pattern of response from depression would be panic, followed i t, by running away, promiscuity, and consumption of barbiturates. . Shirley fit into the group home composition quite well. She readily formed strong relationships ,vith the .Wilsons and her attendance as a nurse's aide at the Stockton State Hospital improved. Shirley's dry .and alert sense of humor quickly emerged and was encouraged in the group home, while around the Project center one could see Shirley. smiling and communicating with other people more easily. Some of € her friends and family berated her because she was hving in a non- Negro onNeoo home and Shirley asked the agent to place her with, Negroes . with whom she had once lived while on probation. This placement was i very short lived and within a month and a half she was back in the : t. group 'home feeling a greater sense of belonging than before. ; I8 YOUTH AUTHORITY QUARTERLY i The Arrival of Scilly Sally, a blond, blue eyed, 18-year-old, was extremely depressed and unhappy, when sllc arrived at the Wilsons'. She too was working as a - nurse's aisle for the Neigllbodl cod Youth Corps at the Stockton State Hospital. Sally, a pe.rccptivc, internally oriented youngster, seemed to j be carrying the weight of the world on her shoulders. Prone to psy- chosomatic illr_ess and feeling very guilty about her family situation, she seemed greatly relieved to be placed- in the group home. Sally had been involved in an illicit relationship with an adult Negro who used Sally's money and directed her every move. Sally's unmet do- 'pendency needs were creating a sadistic, masochistic relationship. At. 1 the same time, Sally had been living with her mother and blind step- r father, who has a severe heart condition. The family situation was i highly neurotic. Sally }acl:ecl the inner strongtl, ands vnort she so ' elesperately needed. The went attempted conjoint family counseling evhich only secined to prove that Sally was greatly in -need of an immediate change of placement. ' As it turned out, Sally's craving for support enabled her to make the fastest positive ad;ustment to"the(group home. I-ler boy friend soon tired of the }louse rules and looked elsewhere for a dependent fe- male to control. Aln-lost imiilediately Sally began looking better and feeling less depressed and guilty. Several factors seemed to facilitate SaIly's rapid adustment: (1) The four girls in tl)e home were not strangers to bey.' (2) A group culture had begun to emerge in the Home where the youngsters, placed as.long as four months before Sally, had made a relatively positive adjustment to the living situation and could assist the «'ilsons and agent in breaking in a new.member. (3) The Wilsons were by now feeling more comfortable about thea role as foster parents and now ' had a base of experience in dealing with girls. (4) The Wilsons had become more familiar ",vith the I-Level .typology classiScation system and could understand differential treatment needs to a fuller extent. (5) The agent bad v,,orked closely with Sally for several months and a close relationship had evolved between the agent and the youngster. f A blond;; of Trouble . January, 1963, was a month of conflict and illness for the group home. ; There were five girls in the group Moine and a sixth was soon to arrive. The Wilsons had been proceeding with trainin- and were less de- pendent on the agent and treatment supervisor.and more able to make decisions and handle individual crises. (ape recordings of the NVilsons i IThe Community Treatment Project Center, apprnsimately ten b:ocks from the group home, provides a lounge, recreation room, and a school program for its wards. The girls assigned to the Community Treatment Proicct in Stnekton drop in almost daily to chat with the agent or with other a^cuts, participate in recreational programs, and often attend a class t or two at the Project school. Sally had been attepding afternoon school at the Project and [ knew all the girls placed in the group.hocne relatively well. t - t YOUTH AU1IIORITY QUART�P.P.LY 19 had been made in which they expressed their feelings about move- ment in the home, and these were used for Dater discussion and evalu- ation. The Wilsons had been a171e to accel t temporary lockup as a continuum in the treatment process and did. not regard such set backs as personal failures. The girls ,vere feeling dissatisGcd with rules im- posed by adults, and alliances bet„,een girls seemed to be emerging. At this time a mectingwas held with tale Wilsons, the agent, and - all the girls. It was unanimously deciclecll that the girls should set their own rules and have some voice .n what happened to those who violated them. It was decided that formal „-ec - y group meetings would be held with attendance mandatorv. House rules were estab- lished by the girls themselves which, much to the agen'C's surprise, were stricter than before.. Confrontation began. concerning alliances and gossiping, and it seemed to alleviate much of the difficulty. Sev- eral evenings each ,veer were set aside for visiting so that parents, relatives, and boy friends could chat informally with the girls and the Wilsons. Because of the Iack of exposure to cons`ructive recreational activities I in the communi'Ly, it ,was decided to begin a series of group outings. i They began with roller skating, motor movies, bowling, s,wimtning at the Y.M.C.A., and became more extensive as the group became more interested in these activities. Group dine rs with a boys' group at the Project ,were held on a monthly basis. Horseback riding and a sailir." trip to San Francisco Bay ,were tried. Following the arrival of the sixth group member, the Wilsons tool: the girls on a four-day trip to Disney- land in Southern Cali.fonlia. Most of these youngsters had newer been i far from the City of Stockton and they �clung to the Wilsons as they toured Disneyland. The trip was very successful and enjoyed by all. Another trip, to Las Vegas, taken in May, and several camping trips, including one to Yosemite '_National Park gave the youngsters new and valuable experiences. A trip to the Capitol in Sacramento and one to San Francisco were a part of the Community Treatment Project's school and recreational programs. These trips were planned Nvith the hope that exposing youngsters to other areas and expanding their frames of reference with the outside ,world ,would stimulate interest in non-delinquent activities. An active se,ving program has been established for the girls, both in the group home and in conjunction ,with the school program at the center. The girls have made a number of outfits and can select their own material from the local stores. An active program of cooking has. been started in the group home ,where the girls have learned to share cooking responsibilities, plan menus, and buy groceries. Thin hopefully will help them prepare for domestic duties in the future. The Agival of Little Sal ' "Little Sal," as the girls called her, arrived in January. �Ier case had been transferred from Sacramento Community Treatment Project be- i t S � f 20 YOUTH AUTHOMTT Q I1RTE.RLY cause .of the -eographical move of her Imotlier. Placement -,vitli the mother had been eery short-lived because the mo'lier had einotional problems which prevented her from uncicrstaudin- Sally's problems. Little Sal was 17 when she ertered the -roup hams. S113 was dein^, of a congenital heart condition and a pulrio:i'ary vasculiir disease. Iler life expectancy was estimated at a year and a half at best. The group neem- begs, were aware that Sally was terribly ill and made every effort to protect her and give her support. The �%ilsons worked closely Nvith Crippled Children Services and their Iocail doctor, a sur-cora who was so helpful and so suppertive that he became the family doctor of the group home. He has shared birth control and hygiene info.-ination with . the girls and alleviated many of their fears concerning physical ill- nesses. Little Sill p.0 ticipated in as mr. ayi activities as possible during her stay in the group home and felt soinewliat secure arid content in this livin-situation. Eecause of Little Sal's frequent stays in local hospitals and several crises in the lives of some of the other -iris in the home, (a car asci- O dent resulting in the death of Clara's boys friend and injuries to Caro- line's brother), it was felt by the `Vilsons and the agent that someone was needed to assist the girls with their reli-ious trainin-. All the -iris in the hone said they were Catholics. In February, 196S, a parish priest from Ireland, whose church is located a short distance from the group home, began visiting the group.home at least twice a month to conduct y s services and to meet special needs. The Death of Little Sal Little Sal's condition deteriorated rapid ly and by early 'Niay it was apparent that death was approach in-. At the end of the month she v:as taken to a hospital in San Francis Co v,'r,' re a team of heart surgeons worked to save her life, brit in vain. Mfrs Wilson and the hcme's other . Sally had spent two nights and two days in the hospital kith her. Little Sal's death was a shock to all the girls. The girls helped Little Sal's relatives plan her funeral and acted as honorary pall bearers. This tragedy brought the girls face to face '.vitii a grim realization that death can take a'person as young as they and for about a month following Little Sal's death, the group clung.very closely together. 1 The Arrival of Bernice Shortly before Little Sal's death, Benice an-ived at the grout) home. She was a tall, lanky, 17-year-old, with a!walI.of defenses built around her that seemed almost impenetrable. Terribly threatened by the feel- . ing of being rejected and once again hunt, she would not allow anyone to get near enou-h to her to begiii a relationship. She acted out pro- miscuously almost immediately and even tried to seduce some of the male parole agents and-Mr. Wilson. Nfrl Wilson handled the situation � extremely well by politely letting Bernice kmow that he was happily married and unavailable. r i t• YOUTH AUTHORITY QUAPTLRLY 21 Bernice bad to be locked up at the Northern Reception Center and Clinic just a few ,vecl:s after her placemcrit, but the Wilsons visited her and planned for her return. Bernice was astonished that anyone would _ want her back and was deeply moved to Iearn that the group members were pulling for her return. Bernice could beat be described as a borderline personality, whose mother has been in and out .of State Hospitals for schizophrenia. Bernice herself could easily have been in a ward of the State Mental Ilospital instead of the California Youth Authority. The Wilsons felt Bernice was the most ditacult case that they had ever dealt with but she has been becoming more open and less defensive since her return. Her wall of defenses seems to have been penetrated to the.point that she is able to relate.to people around her with some degree of success. The Arrival of Po�trnie - Bonnie, 17, is the newest member of the group. She is an assertive F youngster �vho has been in the middle of a family feud for years. I-Ier mother is an extremely disturbed woman. who has taken out many of her hostilities on her daughter. Bonnie is explosive and has many unmet needs. She feels considerable guilt and anxietv. Her adjustment to life in the group home is only beginning. Her fellow group members have begun to confront her regarding her manipulation, grooming practices, and the unrealistic demands which she places.on others. She t ran away overnight on one occasion, but turned lic-sclf in the following 1 morning and was given a week's house arrest which she accepted quite well. The Wilsons have begun to observe her living patterns and are working very hard to establish a relationship with her. She is very frightened of her mother, yet is working on a constructive relationship with her father and stepmother. She seems to view the Wilsons and the agent as protecting her from her very disturbed mother. The Wilsons are learning ho-,v to handle Bonnie's mother and ho%v to deal effectively with her father and stepmother. Whether they will ever be able to form a working relationship with the natural mother is quite doubtful. ! Roy and June `Nilson have come a long wav in a year. They began a f career as group home parents with .sincerity, honesty and interest, coupled with a lot of common sense. They ad&e .ingredients of train- ing, support from staff, and the experiences of livincr on a day to day basis with a group of delinquent girls. Hours of agent time including many a phone call in the middle .of the night have been necessary, to keep the group home going; but the satisfaction of seeing interested, sensitive, effective, and dedicated foster parents develop the ability to meet needs of disturbed youngsters has been most exciting. The Wil- sonsability to become involved in a youngster's total life, which often i entails going the "second mile" for a youngster, has been one of the most significant reasons that the girls have formed meaningful relation- ships with this couple. This often includes staying up all night with a I: sick girl, providing transportation for a job interview, or inviting a boy friend to dinner. TA . ' r _ t 22 YOUTH AUTHORITY QUARTERLY A Promise of Progress 1\4e, uring progress of girls living in a -,roup home is extremely cliili- cult. If the goals•are only the reduction of delinquent behavior, how- ever, then progress over a year's time of operation.can clearly be dc- fined. None of these girls have been arrested by the police since their placement. There have been no revocations. Four girls have been suspended by the agent; only one girl, Clara, has required a permanent change of placement. Clara was unable to meet the pressures of the group home and often found herself the scapegoat. The main reason f for removing her, however, was that the undermining influence of her delinquent family caused uncontrollable temptations for this very weak, dependent youngster. Her placement now will be in a foster home out of the Stockton area, which lropefuiiy will alleviate some of. the under- ;. mining of this deviant family and the delinquent peer group. f Significant changes have been made by the girls in the area of im- proved grooming, pride in keeping their home and rooms clean,select- ing more desirable friends and choosing boy friends who are working. One girl has had all cf her tattoos removed, and another girl is sched- uled to have some of hers taken off soon. Bonnie and Doris are planning to return to public school. Sally is due to begin working as a teacher's aide through the Department of Rehabilitation. Shirley is involved in the College Readiness Program at Delta Colle-e and Caroline is to begin working for the Neighborhood Youth Cobs. Caroline and Ber- nice have steady boy friends whom they hope to marry, but they are . willing to go along with ion- engagemonts in order to make sure they are doing the right thing. Progress in the area of emotional growth is a long and tediousproc- ess and can only be measured over a long period of time. The goal of the Project and the agent is to prepare these youngsters to cope,more effectively with life and to function as relatively normal healthy adults. The operation of group homes for girls certainly has implications for the management and treatment of some delinquent -iris in lieu of in- stitutions. Treating youngsters in their own community semis far more reasonable and productive than sending them away to isolated institu- tions. The operation of this particular group home seems to indicate that lay people in the community can be trained so that they can be- come successful in their attempts to provide. a home for delinquent girls. ' 1 f � i CONTRA. COSTA COUNTY MEMORANDUM DRAFT TO: R. E. Jornl in FROM: Ida Zodrow DATE: February 22, 1971 SUBJECT: Emergency Foster Care Homes The attached document outlines the major dimensions and policies of a program providing family foster care for preschool children requiring emergency shelter care. This pro- gram augments our present policy providing dependent and neglected children shelter care at either the County Hospital or Edgar Children's Home. Procedural matters are not encompassed in this paper. Summar i'l y,: (� I. provides .emergency foster home care for preschool children requiring shelter as part of our program of protective services (court cases (6001s) or voluntary placements) 2. , development of a subsidized foster home program beginning with authorization for (6) six of these homes 3. development of (2) two professional foster homes to care for exceptional children requiring special care (e. g. physically or emotionally handicapped children) 4. attendant cost for the program is approximately $60,000 to the County for the first year operation For the implementation of the program for emergency foster care, the following items must be secured from the Board of Supervisors. ESTIMATED COSTS DELINEATED IN APPENDIX. I . Approval of the policy to shelter children requiring emergency care in licensed foster homes in lieu of the Edgar Children's Home or the County Hospital . Authorization of payment at an average rate of $5 per child per day to foster parents accepting children for emergency shelter care. The payment commences when the child is placed in the home and terminate when the child leaves the home. The first 14 days of Shelter care reimbursable at the standard service rate. 2. Approval of the policy to develop. initially 6 sub sidized homes for emergency shelter care in the County. Authorization to pay $40/bed/month with a maximum of $200/month/home for/subsidation of (6) six emer- gency care foster homes. Subs i dat i on reimbursable r �__��,.r'�.•, �'' ;'" G&N. 9 at the standard sorvice rate. -2- Webrua -y .22, 1971 3. Approval of the policy to develop initially (2) two "professional " foster homes for the care of atypical youngsters requiring out of home care. Authorization of a board rate of $250/child/month for children residing in these (2) two homes. .4. Authorization of budgetary expenditures for program operations as delineated. Items include: outpatient medical .services, staff salaries, etc.: IZ:bll SOCIAL SERVICE DEFAR Ti 1,1EI°•1T CONTRA. COSTA. COUNTY MEIAORANDIUM TO:. R. E. Jornlin, Director FROM: I d'a Zod row DATE: May 7, 1971 SUBJECT: Extended use of family foster homes for emergency shelter and intermediate care of children Attached is our proposal for the Emergency Foster Care Plan. The final draft is the result of excellent staff assistance, especially from �1r. Steve Scarich and Mr. Earl Den Beste. The program seeks to 1 ) develop foster homes for use as emergency shelter care facilities for children requiring such care ,for their protection and 2) develop a system of intermediate care foster homes for atypical children needing specialized long term`care. Board approval is sought for the "packaget°. Items essential for the implementa- tion of the program include: 1 ) amendment of Board Resolution 70/55,5 "In the Matter of Fixing Rates for Foster Care". The new categories of foster homes and their board and care rates should be added. (Refer to attachment) . 2) authorization for the Director to authorize County .pay for the board and care of dependents when this care is necessary for the children's protection. This would enable the Department to place and pay for ineligible children before Juvenile Court action. Specifically, the Department could authorize pay to foster parents for children prior to the' Detention Hzaring. I would wow come the opportunity to discuss this matter at your convenience. IZ:bII cc: R. Wymer Al Croutch E. Den Beste S. Scarich GEN. 9 In the Board . of Supervisors : of Contra Costa. County, State of California November-,2 .` : 19 71 In the Matter of Request -of Pr-obation Commit.tee... 1971 Contra Costa County Grand:- Jury. .. This Board having received a letter from Mr. Alymer B. .. Hussey, Chairman• of-, the Probation Committee. of the_ 1971 Contra Costa County Grand -Jury; requesting- that Board members who serve on the 'board committee" dealing with .probationary matters - meet with said Probation Committee and other interested members of -the Grand Jury ,on -November-, 10, 1971 at 1: 30` p.m. , in Room '108 . - of the Administration',Builing;• and The Board- member.s, .having. discussed said request and ` being in .complete -agreement• as to compliance with same; and It. being the �.co-ncensus of the. Board• that its Chairman and Vice Chairman. should attend said.-meeting_ rattier than members of any- particular. Board committee;_ -' ervisor W. N: Boggess, NOW, THEREFORE, on _motionF of• Sup gg , .seconded'-bySupervisor A.•:-M. . Dias, IT IS -BY THE BOARD ORDERED that .. the Chairman and Vice' Chairman are REQUESTED to. attend the . - aforementioned meeting as• representatives. of tie full Board. • The f-oregoing order was pass,`ed `by the following vote AYES: Supervisors A. M. Dias, J. E. Moriarty, W. -N. Boggess , J. P. Kenny- NOES None-. -ABSENT:. Supery 'sar E. A. :Lins.cheid. hereby certify that the foregoing-js a trueand correct copy of an order entered on the minutes of said Board'of'Superv'isors on the;date aforesaid. c c : Mr.. 'A. B: Hussey .' Witness my hand and the.Seal of the Board of Supervisor -J. P. Kenny Supervisors Supervisor affixed- this 2nd. _day of November , 19 71 E.'; A . Lins c he id W. T. PAASCH,.Clerk County Administrator -- :By Deputy Clerk Elsie. Pig.o t H 24 4/71 IOM { 111 i CONTRA COSTA COUNTY CLERK' S OFFICE Inter - Office Memo Date: November 2m 1971 To: County Administrator From: Clerks of the Board Subject: The Board today. adapted an order directing the, Chairman and. Vice Chairman to meet with the Probation Committee of the 1971 Grand J'ury� ands following adoption of aforesaid order$ Supervisor Dias suggested that you prepare appropriate comments concerning past discussions between Board members, Superior Court J'udgoss, and County Probation Officer. We aro, attaching copies of documents in respect to this ratter. ep attachment ee a Supervisor Dias III CONTRA COSTA COUNTY .` l l CLERKS OFF ICE `, Inter - 0 f f I c e Memo Date:October 28, 1971 To: County Government Operations Committee (Supervisors A. M. Dias and 6 . K. Boggess')' From:C Jerk of the Board Subject: !the ,attached, letter dated October 20, 1971 from the ChQiz .n, °Prabdtion Committee, Contra Costa County Grund ury, was listed:ec an "information" item on -the october 26, 1971.cslender. We are calling this matter to your attention as you may wish to maize arrangements to attend the meeting scheduled for, No,vember 10$ 1971., ®p. attachment /L/V �` ` .GRAND JURY t,6NTRA . COSTA COUNTY P.o:"sax ,I 110 :k MARTINEZ, CALIFORNIA 94553 Ovtober. 20;, 1971 E, .' W. T..-PAASCH CLERK BO'A DA OF CDV1t]RS SY - Da3► ' James',T.. Kenny, .Chairman ,,Board 'of'. Supervisors': Y Contra costa County, Administration .Building . Martinez,,; California . y Dear.Y•`S ir- e Committee' and-,.interested members of . the ';1971 .Grand Jury. are `most'.desirous`, of meeting with ,Board niemb'ers :who serve 'on the'.,boaard commit tee..`dealing }: with`"probationary matters. : 4 We have .set .,aside Wednesday, `November. 10, 1971 at . l 30`.p.mj,' :)in Room", 108"' of ::the .Adm�nistratzon. Building 'for this .meet�ng, We,,would, appreciate Iear�.ng vfroni you no, later ,than ' `November" `3r"d:' . 'rh nk, you for, yourconsideration in •this. matter, = Very `truly yours, qAY R .B," HU SSEY , r Chai, marl;..Probation Committee 4 ABH eaj. CONTRA COSTA COUNTY .CLERK' S OFFICE Inter - 0 f f I c e Memo Date:. December 28s 1971 To: Adini.nistration' and Finance Committee (Supervisors Eo A. Linscheid and J. Ee Moriarty) From: Clerk of the Board Subject: The ,Board today referred, to you and the County Administrator report of tie' Ukeb and assessments Committee of the 1971 County Grand -AW7, d lk , s Ln the 'Board of -Supervisors _, Contira.,. os County, State; of _California' , k t DecemYier:- 28 1n the Matter cif Report of. Taxe.s. .and :As-sessmen:ts Committee of th&..'1971.`.`Contra Sosaa,'Go unty Grand 'Jury. This::Board ha-Ving're"ceived a 'copy zof 'a repots-.of .the Taxes ..,and ::A.sse'ssments C;ommittee'" of-:.,the 1�9?1-.Contra Co.s,ta. County Grand ` : .. :. On :m ' otion of `Sizpery sot W. :N: .Boggess, seconded'by ,Super- VI sor, E..,,A.;. Linsdhe�:d-, TT ,IS I 'THE BOARD ORDERED .that receipt of said report is,,-ACKNOWLEDGED, an:d -same .s,..,REFERRED: to the Administration 'and Finance Committee '(Super;vis.ors LinscheiA and Y u,u J.� E; :-MQ ria and the C6unty.:7Adminis_trator. The, foreg6ing: order :was passed by., the follows ng; vote AYES: Supervisors ,A.' M. D�.as, W', N,' Boggess, E. :A:,:' Linscheid',, J.. P :Kenny. a . • NOES: None:.. ,. ABSENT: Supervisor ' J. E. Mori, ,r-ty, 1hereby certify that-`the.foregoing is is true and correct copy of an order entered on'the minutes.of said Board'of Supervisors on the;date afar said.' cc Superior Court Witness' my hand.'and the Seal of.the•Board of Secretary (2) . Supervisors -.Board' Committee, -: affixed this:_.28th day°, f December , f1g71 Adrdin s tr tar W. T. PAASGH; Clerk By 4b- oan Depu#y -Clerk R. r : Sehoettle N 24 71 1775' Inn , -.� � .. r• Rel e -Date: 12 -20-71 T I�TI� TAXES AND ASSESSMENTS CO' �MITTE �, �197 1 . Forrest J. Simonil, Chairman ;�_- -Leo Armstrong Richard Kerbavaz T. ASCH SUPERVIS RS CLE BOA F A COSTA, gy pu:Y L The property tax is one of the most regressive of all . forms of taxation., and unrelated to the ability to pay. Govern- mental agencies ' insatiable hunger for the tax dollar no longer can be satisfied from the property tax. At the same/time voters , for the lack of understanding of complicated ballot proposals , are adopting Constitutional Provisions and the Legislature, by legis- lative action, expanding the "preferential" property tax treatment of special interests. Property taxes have reached the point where many of the retired, the aged, and the poor are driven from their homes in ever increasing numbers . The same principle applies to the small business- man. . Sadly, but true, they cannot look to their local legislative body (Board of Supervisors) for any relief because this requires action at the State Government level. Annually, the State Legislators and the Governor speak well of "tax reform", "tax relief" and of other benefits for the home owners. The frightful tax load of today inclines the taxpayer T to be more impressed by legislative action in his behalf than all of the rhetoric his experience has taught him to distrust . If any property tax legislation is enacted, it usually results in. a. shift of the tax load from special interests to the home owner. . Un- fortunately the home owners are not aided by high priced lobbyists as are special interests . The net result is in most cases that the special interests obtained preferential .tax ,treatment at the L , expense of the homeowners. The hour is late and the responsible government officials should act at once to relieve the home owner of the oppressive property tax load. Some immediate legislative action is indicated by the fact that dissatisfaction and rebellion is obviously uppermost in the minds of the taxpayers. 1970 Grand Jury Recommendations The four recommendations made by the 1970 Grand Jury were reviewed with the County Assessor to ascertain whether they had been implemented Our findings are as follows: RECOMMENDATION 1 The automation of the Secured Roll 'Maintenance System has been completed.. A reorganization study of the Appraisal Division and the Clerical Staff is now under way. When this study is com- pleted, the Computer Assisted Appraisal Program will be implemented. RECOMMENDATION 2 To provide additional office space the county has pur- chased the Martinez Office of Western Title and Guaranty Company. The office will be modernized and staff moved in from rented quarters, hopefully, in 1972 , f RECOMMENDAT;ION. 3 The Audits Division is adequately staffed. with Auditor- Appraisers . However, limited additional clerical help should be provided to relieve Auditor-Appraisers of routine clerical work. RECOMMENDATION 4 Moving of the lien date from March lst to January lst and the use of "average inventory" rather than the value on the lien I Taxes and Assessments Committee date require the implementation of state legislation. We ask that the Board of Supervisors continue to urge our legislators to in troduce and support legislation necessary to change the lien date. Properties Receiving "Preferen+tial"; Tax Treatment Certain properties are granted"preferential" tax treat- ment under Constitutional Provisions voted by the people, and other properties by the State Legislature: See Appendix III .-for partial list. The list may not be complete, but we feel we have mentioned the major ones . 'This- practice results in a shift of the tax burden and it generally falls on' those least able to pay -- the home owners. Annually the legislature is requested by special interests to give "preferential" tax treatment to certain groups, and the list of properties in this class is growing at a steady rate. Reduction of Utility Assessments by State Board of Equalization The assessment of utility properties for tax purposes is extremely complicated. Therefore, the average taxpayer does not readily understand the process and as a result is most confused. To further complicate matters, the State Board of Equalization uses one formula to assess utilities and County Assessors employ another to arrive at market value of locally assessed properties . The use of two methods of evaluation add to the confusion and lead to inequities between board assessed and locally assessed properties. The Committee felt it did not have the. ti.me nor the , technical skills and experience to make a thorough study of ,the appraisal and assessment procedureslfollowed by the State Board of Taxes and Assessments Committee r Equalization in assessing utility properties . Inasmuch as this is an involved. evaluation and equalization process that is adversely affecting the County tax base, we thought it was best to quote directly from the language of the County Assessor, Mr. Fred Wanaka. "It is extremely difficult to estimate the tax loss attributable to the reduction in utility assessment ratios because of changing methods of allocating the value of that portion of the whole state unit assign- able to Contra Costa County, and determining what assessment ratio the State Board of Equalization has used in prior years . However., changes in allocating value between the counties of California appear to be relatively minor when compared to reductions in utility assessment ratios. "Part of the answer for the reduction may be found in the attached assessed value tabulation. It shows comparative values and growth rate in percentages for the local roll and utility roll for the decade from 1962' through 1971. (Appendix I) •This presents a graphic display of the effects. of the State Board of Equalization's actions in reducing the assessment ratio it employs and, during atlleast part .of the period, changing the allocation ritio between several counties on a major utility installation in Contra Costa County. Since utility growth is dependent upon goods and services it must furnish, a growing state, it. would seem that there should be somelcorrelation in growth factors I Taxes and Assessments Committee . I -of local and utility property. "It has been only in recent years that the State Board ;.of -.Equalization has announced publicly the assess- ment ratio..used in its assessments . Prior to .the time it started reducing its aslsessment `ratio, the Board generally .conceded that it was LtSing a ratio of 50%. The announced downward trend in the Board' s ratio .began in 1965 and has reached a level of 297. for the- .1971-72 he.1971-72 tax year, down from 31% for 1970-71, it is .possible, however, that the downward trend began prior to this time, but is not apparent .on the attached chart because of substantial amounts of utility construction during that period. Ve have used two methods to estimate the tax loss to Contra Costa County bEc4u5e of the change in the policies of assessing utilities . Admittedly more accurate estimates could be trade, but it would require considerable time and effort beyond that which is available from this department with no asSuranee that the time and effect would have an_--y effect upon Present policies of the State Board of Equalization, . X "Referring to Appendix i, y@u will tote that the- assessed heassessed value of all public utilities for the 1971-72 tax year amounted to $171,329,5.40. Ha.d the .State Board of Equalization not reduced the ratio from 50% to 29%, the assessed value for the current year would have totaled $295,395 , 758, a ices @f $1241066 ,216 in as$essed Faxes .a.nd Asscssmeats Committee value. Using a $12 . 56. composite tax rate* for the 1970 year, this would amount to $15,582,077 loss in --tax monies. "Since 1962 , the assessment roll prepared by the Contra Costa. County Assessor has increased 112. 8%, while the utility assessment roll prepared by the State Board of Equalization has decreased 7 . 08%. Had the utility roll grown at the same rate as the local roll, the assessed value of utilities would be $220,496,405 more than it is today. Additional tax monies available on this basis, would amount to $27 , 694,348. "Previously, the Board of Supervisors of Contra Costa• County directed the Assessor to review the appraisal and assessment procedures employed by the State Board of Equalization with respect to utilities. I _have included copies of these reports to give the Taxes and Assessment Committee further insight into the problem. " (See Appendix II) From the above certain conclusions may be drawn with re- ference to utility assessments . The reduction by the State Board of Equalization of the assessment ratio for utilities is having a significant effect on the county property tax base. The shift in the tax load from State Board of Equalization assessed properties to locally assessed -properties appears to be quite substantial, and seems to have fallen most heavily on the home owner. Although utilities have received a huge tax "wind fall" Taxes and Assessments Committee I r I it has not reflected in -lower utility rates for the consumer. Instead, recent experience tells us that rates have been sub stantially increased. The present formula used by the State Board of Equaliza- .tion in arriving at market value differs from the method used by County Assessors in evaluating locally assessed properties. This difference in valuation may result in lower assessments and in a tax .break for utilities. Changing methods of the State .Board' of Equalization unitary ratio in allocating value among the counties could result in the loss of additional assessed value to Contra Costa County. *In order to simplify the calculation of the tax which would be derived from this amount , we resort to the use of a county wide . composite or average 1970 tax rate of $12 ,56/$100 assessed value. This rate is computed by dividing the total net taxable value in the County into the total property tax levies . I s. C 'I I Taxes and Assessments Committee RECOMMENDATIONS 1. We concur with past Grand Juries and recommend the . State Legislature change the lien date from March 1 to January 1, and that the average inventory value be used for taxing purposes . 2. Many Constitutional Provisions voted by the people, have granted preferential tax treatment. Steps should be taken to better inform the voters of all aspects involved and stress how it .may affect individual home owners for any future Constitutional Amendments . Revenue and Taxation Code provisions , passed by the . Legislature, granting preferential tax treatment of certain properties should be reviewed to determine the tax effect on home owners . If the study reveals a shift of the tax burden to home owners has occurred, the State Legislature and the .Governor should take immediate. steps to repeal these Revenue and Taxation Code .provisions . 3 . We recommend the method of establishing market- value of utility properties by the State Board of Equalization be more uniform with the formula used by County Assessors . We further recommend that the present utility ratio of 29% be maintained until valuation uniformity mentioned above is achie -ed. Taxes and Assessments Committee {I •:f i o r1 'n i i i i v; In t l • • In 1>r U v r1 ri (7 pp �l n r� U) rO-1 O O S O� N A -M cU fU r-{ u) (T --1M t`- n p. •. n w w w w (t• w w w w w N10 r•/ C1\ -:11(\ M1, =1 h b to Ill to cu H N 00 w h (^ to A^ V) O 1 w w w O 14 h In % O rl rl 41 vk � f. �. If\i L`i N VCA o r- of ri o to• ~ �1 iti ,i , •0 0 0. 1v�� =t 10 Ln )n o �. CIA O N i 11) .0 .r0•'\ N •r01 O e ' �j. \0i N aw 4 w r/ �D •O 10 M ON _ +3ee e27 �`. w n w w w w w w . to r`l a0 O 11) M N O', QO h 0 M N N N O U L7\ 10 tD (AD" r•1 CN 11 h M 0 0 o Y O O Lr\ to L(\ Zn •o O h N .-1 pb v O �J (0 O . N CO 10 tel) rl �� u, vi �O F M O a, N �O r1 ri �t l� O r- -Ato Mi w w n w w O. "r1 N 1, ON CC) C)\t w I- n m M O O CO N V\ -1 •r'( V) M N a) LA ' C7 7 N O NON M 1 41 V) 0 MM O w r-1 rn O M h O� M t� N S� 4 n) w E..• w w w w w w q) .� r-i -7 (.1 h h O r-1 c0 ...1 M %A ON 00 ON O) h a:) r�M (� H >n `O ri H rrA r0.1 (X) co r•1 41 r1 r•1 \/ _ �J� O. N H f t;i a pp0 A.A 0 1Apo M H In 14 to 10 cli .N E, O r♦ O r-i 1A H tD O% N CO I*1 _ 7 N n 'CM h O\ C, M J F t7\ O\ N 11 Co to r-1 H -7 N 00 l r4 a ON O% O w r-1 O s w - P w w w w w n. U n:v n Ln N mo i^, � o N th- NO � -` CO • N M -1 to �A h fp O 5. E.1.� r1 rl r1 r 1 r 1 r1 rl r•1 rt C) v V) •y a. n. a ,U 0 O Ol n. n7 •t n: U1 � of -<CJ✓� M O S fh O Ln N -7 O O v) o A O O 10 O 4 Ot O .O w in H V)U M -:I ON w w w w N w '1 Ia co Lf\ ci h N h M r 1 h o. N I. ci r-4 INS a a0 M H N h t•\ r-i 4 .M N: 41 F I M N -i H N ..7 00 M. d a{ 4-) �O h m � CO th (14 0\ M O\ L(\ 11 O r1 (L' H O.] C() ON O. ON CC) W h h 9-. U . . � N r-i r-4 ri r-1 •-i r-4fA fA . 1 w1-4 H O 3 r- a7 O N O. NO 'O NO N O V1' O rl- t- M O M M OL OL QO (fir i _7 h tiw w r-1 r-1 FI s Xn C4 C17 C; p w w HUE+ �• c0 co O. ON co . W O\ O H N M _zr L/\ \O _ I"1 co 0 10 • p ..j).\ %O Clift .. Ul 00 0% NO 47\ q ww w 41 W M co r•1 N O U O O ui O In O U (r a` �dr) H O O O G\ % N K1 - (4 w w w w w w w' w T1 1 C- cu C N O\ NO t)) O N Lf\ to C.- C) lir\ 0% r1 f-- 3I t t•\ t- i �f ION rV rl •O CJ N N O r1 (n 0% r-1 O r . V, 1t\ '1 N 1(\ tt) (U al CSU til ['.� (� C- .W 01% O rl N P\ .1 %A 10 i r( 11 \ �! r1 r 1 ri r 94 ri �) i)'7 r•'1 w 4'y tl A N r11 .� :1 to 1 OPPIM OP THE CMUYT ASSESSOR Inter-Office demo TO: E. F. Wanaka DATE October 28, 1963 Pftffl: A. W. Glendinning A. J. Lapor io SIIBJRCT: Inquiry Report of State Assessed Utility Assessment Roll ' In compliance with Resolution No. 2157 of the Board of Supervisors , A. W. Glendinning and A. J . Larorio of the Assessor 's Department have again reviewed the State Board of Equalization's practices of assessment for the public utility roll . L. J. Eastman, Chief of the Valuation Division, State hoard of T:qual•ization , pro- vided the necessary assistance. The results of the investi .rati.on j are indicated as follows : , Consistent with the apparent State hoard policy of "equalizinj-" the utility roll , it appears that the Board is continuing its practice of gradually reducing the assessment ratio of State assessed properties. It is indicated that this policy may continue indefinitely. or until the Board feels that the proper degree of equalisation has -been achieved, It may be further assumed that future utility growth Will tend to offset the declining assessment ratio, and that the Board policy may be to reflect a slipht gain over the previous year's assessmentrolland to adjust the assessment ratio to market value accordingly. - It was stated that , with normal county growth , the Board roll would in all probability level off at approximately a one or two percent gain per year.. "Equalization" of the Board's market value ratios for taxable . i , • tangible utility property is still in its infancy. A reversal of the trend can only occur through a change of Board policy, a change in the Board' s methods of market value evaluations, or a fantastic • over-night growth of the public utilities. In the actual inquiry, investigation' again was directed to the Pacific (:as and Electric Co. , the lar^est taxpayer in our county. Q The survey revealed the continuation of the . Board policy to "equalize and reduce the assessment ratio" of uttilities. In its 1963 appeal to., the State Board of Equalization, Pacific' Gas andlUcctric affirmed that "several years apo. we were quite hopeful that you were embarking, •' upon a prorram of gradual equalization and , indeed, our sty-idies indicate that you were doing so. A similaristudv of our assessment for the taxable year 1962-63 indicated that 1the Board wad nrain :a ;.� beginning, to work toward gradual equal.izatidn. We strongly urge . � that the Board continue an this program so Ihat.equalization can. gradually be achieved." ./0 S, ' E. P. h'anaka 2- October 2R, 1963 Board valuations are segregated between two classes of prop- erty , unitary and nonunitarv. Unitary property consists of the internal opernt.ing network of the utility; i .e. , the unit of rroduc- tion. This property is valued as a whole , and the assessment is : then allocated to the vnrious counties . in proportion to thei r share ' of ttic unit . Nonunitary property is nonoperative or not cssen.iial to the operation of the utility. It consists of pipelines, leased facilities, vacant land , etc. Nonunitary assessments are made individually to the county where the property is situated, and no allocation is necessary. A few years ago, it was established that the Board was assess- ing all property at a ratio of 50% of its opinion of market value . Members of the Board have recently expressed the use of approximately a 45°o assessment ratio, and we are leis to believe that unitary • . property may currently be .assessed within a ranee of 42 - 4576 of value . The assessment ratio of noizunitary properties has been reduced t from a 30% ratio in 1961 to a current minimum of 25%. I The local assessment roll has shown `a 'consistent annual growth of 7 - 9%-over recent years. Conversely, the annual growth of the Board roll has. diminished from M in 1960 to a subsequent low of less than 1%6. It is apparent that the "gradual equalization" from � . approximately a 4576 assessment ratio may continue for quite some time. "Equalization" of the Tloard' roll has had a disturbing effect on Contra Costa. County' s utility assessment- Ilorma.l economic growth of t he largest state of the Union presuproses similar economic Frowth of service industries within the Stab: . In the case of Pacific Cas and Electric, it has been prnblically stated that significant Frowth had occurred in the past year. However , the policy of the Board has . ;! not made this evident in the assessment roll. Proeedrnrally, the ; ,I Board resolves the market value of a utility , determines the ratio, ; and submits the assessed .vnlne to the Valuation Division. for alloca- t.i.on t.o the. proper taxing jurisdictions. The allocation .ratio 'is : determined by dividing the t►nitary property assessed value by the `t replacement cost less depreciation value of. the unitary system. In spite of the economic rrotvth of the Pacific' Cas and Electric , the allocation ratio decreased from 30.78576 in 1962 to 30 .121% in 1963 , an over-all decrease of 2.2%0. Using ithe 1962 assessed value of the Pittsburg Steam Plant , the 2.2o decrease in the allocation ratio would have res�ilted in a loss of over) one million dollars of assessed i value in that particular code area. New construction reduced this . loss to . F00,000. "Equalization and the reduction of the assess-ment ratio" will continue to have far-reaching effects upon the State utility assessment roll. A compensat;inp effect in -an individual county may be the degree of new construction and, consequently, the degree of allocation which that particular `county may receive. L. P. hanaka -3- October 28, 1963 i The Contra Cotta. (Antioch) Steam Plant continues to be an exceptioh. roIIowinf, the recommendation of the joint Interim ` Comii t t c e on A;5:smcnt praet.iccs, Mary 1959 , the Bonrd has 1)ce.n attempting to adjust the "overallocation" of value at the Antioch , Plant . Although other unitary property assessments were 1)cinr. allocated at 30.P70 of replacement cost less depreciation in 1962, the Antioch Plant was, still allocated on a 367/0 basis . Exparision . Of the Antioch Plant permitted the State Board Valuation Di.vi.5ion to adjust this allocation ratio as painlessly as possible. The , current allocation ratio of the Antioch Plant was reduced from 36 to 32.43po of its replacement cost) less depreciation. Conse- qucntly, the 1963 asscssedi value of $33,827,000 reflected little chance over the 522,826,740 assessed in 1962, and Contra Costa County received little or no assessed value increment on the 19- ; million doll.ars invested in Antioch durini- 1962. It is forecast that similar adjustments will be made to the Antioch Plant alloca- tion ratio in the future. , r In summary, it has been stated factually that the board is "equalizinf, and redticing the assessment ratio." This policy should ` result in a declining rate of growth of the State utility roll. An optimistic forecast is for one or two percent annual ' increase in Contra Costa County' s utility assessment. Even this 1 ' prediction is contingent upon substantial utility expansion within ' the County. � The Contra Costa (Antioch) Steam Plant' assessment is being • adjusted to conform with other unitary property allocation ratios . Future expansion will be offset by a declining allocation ratio. ' and no appreciable increase in assessed value can be anticipated within the immediate future. , l . A JL:imr , 1 ' 1 U 1 OPPICB OP Ti{E C010N 'Y ASSESSOR � Yntcr-Office Memo 1 TO: J. P. j h1c5 en , DAT Rs October 2.`?, 1963 County ArVi is trator P ikon: IIn. P. /W 1.10\a County A(J se. sop SUBJECT: ReviProcedures in State Assessed Properties Attached is a copy of a report made by A. 11. Glendinning and •A. J. Lagorio concerning• their current investigation of the assess- ment of utility properties. 1 It would appear that the appraisal. and assessment procedures followed by the State Board of Equalization are consistent with those of last year and also consistent with their announced pro- cedures of r.radually reducing utility assessments. This is further, evidenced by the gradual rectucti.on in the ratio of State assessed property to the entire .!assessment roll . 1955 2b.22% 1956 22.66 1957 21 .43 tt. 1958 21.19 t 1959 20.95 ; j 1960 2,01.08 , 1961 1.o 99 1962 lftI.90 I. 1963 17.,Q5 . . In summation, we may conclude that there will be : • ' 1. A continued shift in the tax burden from State assessed properties to common property owners caused by a reduction in i assessed values of existing facilities of •� ! the various utilities. 2. A ,reduction in the allocation of the total . •? state-wide assessment of given ut il_ities i to Contra Costa County will further reduce ? assessed 'values in Contra .Costa County., r •• ; ; 3. Continued emphasis on income which because + of statutory ceilings , is the lowest indi- cator of value. I j 1 P. ,%Ic^ Prien � •2- ctoher ?R , 1463 The heart of the controversy continues to center around the ? question of whether or not a monopolistic industry which is subject j to an additional governmental rer►lation stioul(l, because of this , enjoy n different treatment of the vailiation concepts than private Industry. t . 1 1 y f - 1 � i } � w�` .. s � �. � tP.+^"w+.rn�. .* .�..�...•�.. ... .... a.� • I ...• .sae tW`.�„w�R � II •' . 3/14/67 An Outline of the Procedures followed by the i California State Board of Is'qualization i I in the Allocation of the. Unitaryl Assessments of State Assossoos to Taxing Jurisdictions I Section 11+ of Article XIII of the Constitution nayn, in effect, that the Board of Lqualization shall value and assess the properties of utilities and railroads, and then further,' "all property so assessed by the Board shall be subject to tnxa- tion to the same extent and in the same manner as other property". ' The Constitution tells the Board what to do, but not how to do it. The values' of public utility and railroad properties. are determined on a "unit" basis, and it is repugnant to ' the :"Unit value" theory to attempt to alssign portions of the unit (. value to the component parts of the unit. However, it has to be j done if the Board is to comply with the requirements of the Constitutional provisions, that is, the unit value has to be � .. allocated to the situs of the component parts so that the properties may be "subject to taxation to the same extent and same manner as other property". While an allocation procedure has to be more or less ' arbitrary, it is almost axiomatic that the allocation. of the unit ' value to each of the component partls should be, as nearly as possible, in proportion to the amount that the part contributes to the earnings of the company, as earnings are.- the very essence of value. In light of this, the Board feels that the unitary assessed value should be allocated in proportion to the repro- ' duction cost new less depreciation (RCiJLD) of each component part of the property. Others feel that the allocation should be in ., proportion to the historical cost less depreciation (11CLD) rather . than RULD. The reason that the Board Peels that allocation on ! + the basis of RCPILD is more valid can be explained best by an example. Suppose that two identical hydroelectric power plants jwere constructed by a power company, one just before World War III and one immediately after, when the average price levels were s almost twice as high. Each plant is generating the same amount of power and will continue to do so for practically the same number of years in .the future. Each plant is going; to -produce i practically the samo total amount of a saleable product between . .� the present time and its retirement date. That is, each plant' s ; production, and hence its contribution to the company' s total . ;,. earnings, is practically the samo. I However, if the unitary value s was allocated in proportion to IICLD, the pre-war power plant would i have only about one-half the "allocated assessment" that the post I , .war plant would have. If the allocatlon. was made upon a basis of ' -RCNLD, the "allocated assessmentd". would bepractically the name_ • ;' ` . which is •patently more equitable. -2- • Those that support allocation in proportion to IiCLD, ! do no mainly on the basis that, in California, IICLD is tho amount upon which the utility is allowed to earn. IICLD, or rnto � base, is an amount that the rej7,u_lntory commission considers only +• in tho arrregato in -rnto dotorminnti�on. Tho rntei dotorminod 'tiro supposed to insure nn adequate return on tho amount originnlly invested that still remains in service and to Insure a return of the original investment by the time tho property has to be re'= placed, that is, to preserve the integrity of the investment. Other bases of allocation have been suggested, most �.i of which involve physical units instead of dollar. figure3. For example, for electric companies the unitary value would be allocated to situs in proportion toconductor-miles, or for a railroad, in proportion to track mile3. VIhile some states do allocate value .in this manner, there is not much to recommend ' the method except ease of application. j � ! The actual mechanics of allocation of the unitary value under the Board' s present procedure are somewhat labor- ious, but not too complicated. The assessees are required to file property statements each year in which .they list all their property in each county bylocation segregated to tax code areas. Cost is associated with each item in the listing, or can be determined readily from associated reports. Tax code areas are geographical'areas in which a common combination of tax rates is 'applicable to a given class of property (that is'. land, improve- ments or personal property) . ; i .. •. Prior to the time of the riling of the property state- ment by the assessees, the Valuation Division- of the Board has made reproduction cost new less depreciation studies from which j the RULD of each item listed in the property statement can be determined. The basic information for these studies obtained ' from the companies ' accounting record3, .is .dollar-age information . --a segregation of the dollars invested in tangible assets by year of investment. This information results in a determination of remaining dollars invested in the property by year of place- ment for each reported item. By use' of "cost factors" the Division trends these costs up to present price levels, arriving ' at an estimate of what it would cost to reproduce the items of property today.. Based oil the date the property was put in service and on lives estimated by the Division, appropriate amounts of , i• depreciation are determined and thelfinal RCITLD's are arrived at by items. The Valuation Division maintains on a current basis ,I over seventy different "cost factor',' or price-trending curvesy each of. which is applicable to a different class or type of -utility or railroad property. . The information for constructing "i those curvos is obtained .from many sources, such as actual ! con parativo costs from utility companies, costs and coat indexes furnished and published by tho Interstate Corncncrce Cornrni. sion, , Lnginooring Nowo-Record, ;Marshall �� atovoiis Valurction Sorvico , ' . Whitman, Roquardt and A:+sociatoo, 011 and Gao Journnl , Railway Age, L. 3I. 33oecich unci Asr,ociates, etc. The lives used in depreciation determinations are also based on many .sources of • • i.nformation, but mainly on observed ages of utility and railroad properties at time of retirement and, more im3-ortantly, on ; application of mortality curves to gross addition and retirement data of'properties of utilities and railroads consisting .of many •' ! similar units. The condition percent tables used for deprecia- tion calculations by the Division are based on present worth principles (using sinking fund formulas) adjusted for reduced productivity with age. i The actual allocation calculations are somewhat as �. follows: By consideration of the indicators of value, historical cost less depreciation, reproduction cost new less depreciation, capitalized earnings, and tho .market value of stock and debt, furnished by the Valuation Division to the Board for each assesseo, the Board determines the ,unitary assessed values. The unitary assessed values are than submitted by the Board to the Valuation Division for allocation to taxing jurisdictions and preparation i of Board Rolls for each county and for each city having its own ' assessor. The Division compares the total unitary assessed valus r of the properties of a particular assessee with the total RULD of the same properties as determined by the studies mentioned I above. Suppose, for example, the Board's unitary assessed value is $3,500,000 and the comparable total RC'NLD is '10,0001000. The -ratio of assessed value to ROLD then, is. 35;o. If the allocated assessment of each item listed in the assessee's property state- ment is found by multiplying the RCNLD of each item by 35"', and + then all the allocated assessments are added up, they will total ' j , $3,500,000, the total unitary assessment fixed by the Board. There aro some deviations from the strict policy of allocating assessed value of the unit by application of the + ratio of the assessed value to RULD. Certain, properties which are not of a special-purpose character (e.g. land and material and supplies) are first segregated from the unit valuo and 'are given an allocated assessed value that is equal to the respective products of their appraised value and the ratio of the assessed value of the unit to the appraised value of the unit. Then, + ; after the total unitary value is adjusted by the total allocated ,1 assessed value of these non-special-purpose properties, the • , � remainder is spread to the component parts in proportion to RULD, as described above. The allocated assessments of these • i non-special-purpose properties is a comparatively small percent- age of the total units assessed values. unitary j It probably should bo. mont;ionod that non-unitary properties of state ansonsces do not pronont an allocation problem. Thin typo of proporty con::i.tAs of non--operative t pro.pertio::, that is, propert.icn owned but not u:iod in tho primary function of t2ho compnny} nuch an 1nndi ovrnod by n rail- road but leased out for agriculturnl purposes, properties loa3ed from others by the asses.-cc, possessory interests, and money. These items are listed in the property statement of the assesDoe by tax code areas, and ' the Valuation Division determines the market value of each item separately. Assessments for these propertics, which are 25% of market value) are recommended by the Division to the Board for adoption. r t I ) 3/14/67 , An Outlino :of the Principlos Adhorod to and the j _ Procnduros Followod by the California atnto heard i or. Equalization in the Valunt:ion of the Unitary . Properties of Public Utilities and Railroads For Taxation Purposes I In the Revenue and Taxation Code, value is defined an follows: " 'Valuo' , 'full cnsh value' , or 'cash value ' monns the amount at which property would be taken in payment of a dust debt from a solvent dobtor." Fundamentally, this is the same as the somewhat expanded definition of value that the Committee on Unit !" Valuation of the National Association of Tax Administrators { included in its report on "Appraisal of Railroad. and Other Public ` Utility Property for Ad Valorem Tax Purposes", published in 195+. j . i In its report the committee defined value for tax purposes as 1 follows: j I � " 'Value for tax purposes' is' the price at which a property could be sold at a given date if the seller had ample opportunity to seek out the highest bidder, and the bidders, in turn, had ample opportunity to inform -themselves of the character- istics of the property and to ascertain the terms upon which alternative properties, if any, could be bought. It is not the same thing as cost,; although the two tend to be equal at the time t the cost is incurred. It is not the same thing as 'value for rate-making purposes ' although the rate base established by a regulatory agency tends to equal the value for tax purposes if the utility is able' to earn what .the agency regards as a fair return and no more, and the agency's concept of a fair return coincides with that of the investing public. Value. is not necessarily the present worth of the future income actually to � . be derived from the property, nor is it necessarily the present worth of the assessor's own best estimate of the future income; r it is the expectations of investors which govern values, even though they may differ from those of the assessor." The Board subscribes to this definition of value and In the valuation of the operative properties of state assessees endeavors to use principles and follow procedures that conform ,. • ' to this definition. To the extent possible, the Board' s valuations are unitappraisals, that is, appraisals of integrated properties +' as a whole without any reference to. the value of the component parts. Complete new appraisals are ipade each year. In making unit appraisals of utility and railroad •i ' properties, four main indicators of value are developed, not � all of which are available for all properties. Those indicatora i are: _2_ . Historical cost loss depreciation 2. Reproduction cost now less depreciation i 3. Capitalized earnings + Stock, and debt valuo The Board, is also supplied with other data bearing on value, whore appropriate. Historical cost less de is considered to , __. _ .__. be a very important. indicnto_r of value for gas,_electrJ,c_??--and "telephone companics-"bois is comparable in California to the rate base, the amount upon which the regulatory commission allows the utility to earn what it considers a fair rate of return sufficient to provide adequate service to the consumer ,+ and to attract necessary additional capital investment. It is not an important indicator of value for railroad properties, • however, as most railroad companies, by reason of the competi- tion to which they are subject are unable to charge enough to make a fair return on the net investment in their properties. This indicator includes some amounts that are not included in r the rate base and excludes some that are included. For example, it includes Donations in Aid of Construction, which is excluded . in the rate base, as there is nothing in the revenue laws of the State that excludes this property from taxation, and excludes. "working cash" , which is included in the rate base as this 2s an intangible and the Board' s unit assessments .include only tangible property. The depreciation which is deducted from the. original cost is the book depreciation, since this is the amounk* . . that has been deducted to arrive at the rate base. • It might be well to point out that if .a public utility • is sold, the price paid by the new owner does not become the rate base. The rate base continue's to be the original investment (mirnus .deprociation) in the property made at the time property • � was first devoted to public use. Reproduction_.cost..new less _doprociation is not con- sidered to be an important indicator of value for unitary alato- •assessed property. No prospective purchaser, it is belioved, would consider paying an amount equal to the reproduction -cost new less depreciation of a Gas, electric or telephone company ' when it greatly exceeds the historical cost new less depreciation � '• upon which the regulatory commission would allow him to earn a ' "fair" return. For railroad meaningless because • � � properties it is of the existence of the great amount of obsolescence and .other functional inefficiency in the properties. However this indicates^ is regarded as a ceiling; for taxable 'value. The California . Constitution exempts franchises from property tax, and it is ' considered that any value greater than reproduction cost new less • depreciation is franchise value. r As. carnings aro the very ossonco of value, the Board i fools that capitalized earning value is one of tho most important valub indicators. In capitalizing earnings , tho Board seeks to j find tho valuo to a prospoctivo purchaoer--the amount that tho I prospoctivo purchanor coiLld pay for tho proporty and havo tho original cost returned to him by tho time tho property is worn out, with interest on his investment until it- is fully returned. The Board capitalizes three different amounts. The. t first of these is riot operating revenue before depreciation. - Tho reason for not deducting; depreciation is that the present owner's � depreciation charger are for writing off hip investment and are not necessarily an accurate statement of the yearly loss in the Present worth of the future earnings. In capitalizing before I depreciation, the Board adds an increment to the basic capital- ization rate that will provide for a return to the purchaser of j his investment by the expiration of the calculated composite life expectancy of the property. This increment provides for deprecia— tion eprecia tion of the investment of the prospective purchaser, .or return of his capital, riot of the present owner' s cost. The Board does not capitalize net earnings after depreciation, that is, in perpetuity, as this would produce the same appraised value for an old property that has a life expectancy of one year and for -a relatively new property that has a life expectancy of, say, j 25 years. In capitalizing before depreciation, the income taxes are "normalized" by adding back into the stated amount of taxes ' any reductions due to rapid amortization, accelerated depreciations • and investment tax credit, as they would not be available to the -purchaser of the property. Also, any amounts that are due to adjustments of prior years ' taxes are eliminated. The' second amount the Board capitalizes is net operating revenue before depreciation and income taxes. The rate for ; capitalization at this point is the basic rate, plus increments for depreciation and for income taxes. Tho incomo tax increment is obtained by the use of a formula that talces into account tho effect of the depreciation charges and the probable capital . structure of the prospoctive purchaser, using the assumption ' that the capital structure will be the same for all companies in a given class. The Board feels thatt say, a railroad does ' ! not have a greater value than another simply because it has more indebtedness and therefore has a smaller income tax obligation, other things being equal. The third amount that the Board capitalizes is not •.� before depreciation, income taxos, and ad valorem taxes. The ` ? total capitalization rate in this case includes an increment for �.► ad valorem taxes based on the total taxes levied on the previous ' i 1 year's a^sossed valuo dividod by tho previous year' s market value. This in effect bares ad valorem taxes on the vnluo being found rather than on . the val.uo that served as the prior I ycnr' s tax baro. This increment can be accurately dotermined only for an intrastato company and in only used for such compnn.ias. The Doarcl considers the capitalization of this earning figure the most reliable of its capitalized income figures. ; The basic .cnpitnlization rate used in earning-valuo calculations is determined by the:Board ori the basis of current . rates of interest or return which the prospective purchaser would have to pay on the various typos of securities with which he would finance his purchase. I The capitalization of past earnings is a valid indi- cator of value only ,if the past earnings reasonably reflect, in { ' • '-'' ' the judgment of the appraiser, what the earnings will be in the future. For this reason, the Board adjusts earnings before capitalizing to remove the effect of any nonrecurring losses of income, and to take into account any increase iii income that can be reasonably expected, such as that due to future rate increases. The Board capitalizes a five-year average income for companies . with little or no capital expansion such as railroads, but for growing companies such as gas, electric, and telephone companies* the Board feels that only the income of the latest year is . - pertinent, as the income of any prior year does. not reflect the '•:� income from the Presently existing property, the property being. . valued , I The stock and debt indicator _of value is derived for all companies whose securities are traded on the market in substantial volume. The market value of the outstanding equity securities and dobt obligations, plus the market value of the current and deferred liabilities, establishes the gross stock ! ' •'• ' and debt value. To obtain the market value of the tangible unitary property, all assets that are not part of the onitary • " property or are not assessable whose value is reflected in the market value of the liabilities must be deducted. These deductible iters consist of such property as accounts receivable, --nonoperative properties, sinking funds, stock and bonds of other companies, and licensed motor vehicles. . The average prices of securities for the previous twelve months. are used for current value determinations, as this period is believed to be sufficiontly ` long to smooth out the effects of any momentary extraneous in- fluences on the market, but not too long to reflect the current . ! opinion of value in the market place. !' In the final determination of market value, the Board i � • does not use a formula to weight the various i.ndicators-•of value, ' but gives such weight to each indicator of value for each assessee l as appears to be justified by all the facts in its possession. '* • APPENDIX III CONSTITUTIONAL PROVISIONS Article XIII Section 160 et seq . - Taxation of Publicly Owned Property. Reference here is to the East Bay Municipal Utility District . Property of municipal districts is exempt .where those properties lie within the district boundaries . Until recently, the . method of assessing the properties located outside the District was similar to-other properties.. In the last election, a Constitutional Amendment was passed prohibiting the assessor from increasing the value of those lands lying outside the District by any percentage greater than the population increase. Said factor is to be computed by the State Controller. Therefore population does not reflect a full measure of the increase in property values . Article XIII Section 206 . This Section provides that private non-profit golf courses shall be assessed as golf courses rather than according to the market value of the land. . It is discriminatory in that it allows country club golf courses to be assessed at a lower rate than a public golf course. Article XIII Section 14-4/5 (Taxation of Insurance Companies) and Section 16 (Taxation of .Corporations) refer to the taxation of banks and corporations. Banks and insurance companies s` pay a State tax measured on their return which is in lieu of certain property taxes. Article XXVIII - Open Space Land. This provides for preferential treatment of .real estate based upon its earning ability rather than market . value of the property. At the present, this exemption is not significant in Contra Costa County. However, there Taxes and Assessments Committee a3 is, action in the Legislature to remove many of the restrictions required to quality as open space land. If this is done, there could be a substantial drain on local revenue as. it is non- reimburseable by the State.. REVENUE AND TAY,,%TION CODE PROVISIONS . Section 209. 5 .provides that vessels of more than 50 tons, burden are exempt from taxation while under construction. Other types of property are taxable while under construction. Sections 218 and 219 provide for homeowners ' $750. 00 exemption and for 30% exemption in business inventory. Unless there is. legislation extending this 30%, it will revert to 15%, next year. The monies lost by these exemptions are reimbursed by the State. Section 227 . Certain documented vessels, in particular fishing vessels, are to be assessed at 1% of full cash value instead of the 25% used for other properties . This is not signifi- cant .in Contra Costa County at the present time. Section 988 provides that the value of motion pictures is the value of the tangible material, that is the salvage value of . the film itself. This is not significant in Contra Costa County, - but is a good example of preferential treatment. Section 991. . Baled cotton is taxed at 1/10 of 1% of its value. - Section 992 . When wine, winery products, or brandy products are manufactured in California by a licensed wine grower, they are subject to taxation only once while so held on. the. first day in March on which they are held immediately following production C2 Taxes and Assessments Committee T' of manufacture. Section 5363 . Aircraft are to be taxed. at 1-1/2% of the full cash value as determined by .the assessor. This is in compari- son to the tax of other_ properties which in general amount.s to between 2 and 3-1/2% of market value. Sections 5501 through 5523 . This provides for the taxa- tion of livestock used for the production of meat for human con- sumption or fibre, not including swine or dairy cattle or male animals hold primarily for breeding purposes . The rate of tax im- posed is 5 mills per head a day that the animal is within the County. Not only has this substantially reduced the tax revenue from. our largest agricultural industry, .but it becomes an adminis- trative nightmare in attempting to enforce the law as it is written. Taxes and Assessments Committee �j IN THE BOARD OF SUPERVISORS / OF CONTRA COSTA COUNTY, STATE 'OF CALIFORNIA December 7, 1971. In the Matter of Report of ) Human Resources Committee ) with respect to 1969 Contra ) Costa County Grand Jury ) Reports. ) This Board on January 60 1970 having referred to its Human Resources Committee (Sup,ervisors J. E, Moriarty. and A. M. Dias) reports of the Probation Committee and Social Welfare Committee of the 1969 Contra Costa County Grand .Jury; and Supervisor Moriarty having reported this day on behalf of said committee that report on these matters has been held in abey- ance pending review of the results of the committee set up by the County Administrator to coordinate the activities of the four depart- ments, namely, probation, welfare, hospital and health, and pending action on consolidation of some or all of these departments; and Supervisor Moriarty having indicated that recent action taken by the Board in .implementing the consolidation of the hospital, health and welfare departments should eliminate most of the coordinating problems referred to by the Grand Jury reports; however, pending the consolidation of 'the probation department with the new combined ' department, the Board of Supervisors, through its Human Resources Committee should make sure that close coordination is maintained. between these departments; and On motion of Supervisor Moriarty, seconded by Supervisor Dias, IT IS BY THE BOARD ORDERED that the report of its Human Resources Committee is APPROVED. The foregoing order was passed by the following vote -of the r Board: AYES: - Supervisors A, M, Dias, J. E, Moriarty, W. N. Boggess, E. A, Linscheid, J. P, .Kenny, NOES: , None. . ABSENT: None, I HEREBY CERTIFY that the foregoing is a true and correct copy of an order entered on the minutes .of said Board of Supervisors on the date aforesaid, Witness my hand and the Seal cc : County Administrator of the Board of Supervisors affixed County Welfare Director this 7th day. of December, 1971. County Probation Officer County Medical Director W. T. PAASCH, CLERK County Health Officer. By4_,, P_ Elsi Pigott Deputy C ler 11 t. . J� 1 Y .'—in::�� .,�,.1,-,:��,.:# : -�& ., ,-.-:�� 6 - .�: ..�. , ,� 1. iO 4 % � F ' a y1 CCC••JJJ ` '' { �'� '� , I �� BdA�iDrOF SUPERUISOFiS , ``' ,j =s \, T C11 N i0 TRA`COS A OLJ TAY + I d - t,,�l , ! rt "� 9 ,�":i—, , ",-:,-�,�.,.�::,�_-*,.:".�. � t a.�::ADMINISTRATION BUILDING £ I VV ( i; qR 11NEZ=CALiFORNiAd94553yf &I'l--.- SUPERVISOR,THIRD DISTRICT Cr �� � a� �1� -- F� tC OFFICE E t� s� 1. (F 3445 GOLDEN GATE WAY ` — �, ��kt ' JAMES E MORIART- ,: LAFAYETTE,CALIFORNIA 9454. .' + d �,;Y�. _._ �� �- } X, J a PHONE 2844733 % I `�,..�y � - �$ 1'l � G (/ Jy"" ji w �, _ ,• �.. a �7 7 [, 1. i GpxEr'tkf SFJ/�^}D Ci �tlp n\ltF4�J'x 6 , I�t� C?� A �� 1. ]9 TOi Board of Supervisors " �7 Cis i Gv1. r: , ai. FROM• Human Resources Committee (Moriarty and'Dias°) t ,a ,i,- 1. .. - F. - k - i:- ' r'r . .. 1. The reports of. the Probation .Committee . and the Social . tl Ix Welfare Coir�mittee' of .the '-`1969,Grand Jury ,,are still::a matterI.;of :record' as Board refe1. rrals _to this Com1.mittee 'ti,4 x =Report `on these matters has been ;Yield in abeyance pen i.ng ,U ,` ' t s review.'Of :.the.', results of the . committee set up� by": t1 .he , County .Administrator to .coordinate` the =activities of the �, ,- four;:departments,; namely; -.probation, welfare,. hospital " and•,.health. Report has also .,been held .up 'pending action :, on consolidation of _some 'or all of. these departments. ;iL -;r I The Boards recent .Action impl.ementing 'the. consolidation .} of :the .hospital, health,'and welfare "%departments: should �' eliminate mos:t. of the coordnating' 'problems referred to by._the. Grand :Jury reports.: :.;However, pending the: ,conso.1 L .idati'on" of :_the probation_::depa;rtment with the new: ;combined,: ' x `depar.tment, .the' Board of':.Sizpervisors, hrough it% s HumanI . . 1. Re'sour.ces Gommittee: should .make sure. that close;: coordin1. %}_ s at,ion is maintained between these :`dep s . _.:> L. 1 i Y: :, S':'.. pery sor J. Mo rty. upervi r M. `D s. `. ` t Dated• December 7, 1971 ,': ;� . , a, i r r - i, ,i. . 11 a t s y rl i. :1r �:. ° s <% t a �. _.v ., •y . h } .... 5 5 - ' -- In. thea Board of Supervisors Contra .;Costa County, State'.of California. December 7. 1971 In the Matter of. Report of the Special Districts * Committeeof the 1971 Contra Costa County Grand Jury, - This Board having received a, copy;of .the report Ofthe Special Districts -Committee` of the 197?: Contra •Costa County Grand Jury coxrmienting. and making recommendation's with respect to fair employment practi-ces -in 'this County; On, motion of Supervisor..E`. .A. Linsche1.d; seconded by :- Supervisor A. Xe' -Dias, IT- IS. BY THE BOARD ORDERED' that receipt of said report is ACKNOWLEDGED-, -and -same .is REFERRED ' to the County -Director of' Personnel': and the County Administrator. The foregoing order was passed by the following vote AYES:- _Supervisors A: M'. Dias , J, E: Moriarty, E. A. Linscheid,. J._ P. Benny. NOES# None. ABSENT: Supervisor .W N, Boggess . -1 hereby certify .that the foregoing is a true and correct copy of an order entered on the minutes-of said Board of Supervisors on the date aforesaid. -cc:. Grand ,Jury Witness my hand and the Seal of.the Board of Peiisonh6l Director Supervisors Administrator .` affixed this 7th. day, of December , 1971 - , . .-.. :. • •.. ... � W." T PAA SCH, Clerk By V Deputy Clerk Lousette ,Kincaid = H.244/7.1 IOM LI SPECIAL DIS'T'RICTS COMMITTEE � 4�..� is� REC �1 a Fortney H. Stark, Jr. , Chairman /� �� G. Stewart Paul / -• Donald E. Perkins W. T. P A ASC H Peter A. Veitch cLeR BOAR F SUPF_RVISOR.S� N COSTA Arthur Wagstaff BY ow FAIR EMPLOYMENT PRACTICES IN CONTRA COSTA COUNTY Contra Costa County is not providing a fair share of jobs to minority people. The following report is based on the most complete survey made since the 1969 report of Mrs. Hernandez for the Human Relations Commission. This report covers far more employees. as it includes all the special districts in the county who may be considered to be using public funds to create jobs. The report indicates the lack of a positive fair employment program. This committee interviewed 88 organizations representing over 25,000 jobs. Special districts wholly within the county, excluding those in the heavily-black cities of Richmond and Pittsburg, had a black hiring record of only 3. 85 percent. The minority population of the county ..is 7 .4 percent, resulting in a hiring disparity of almost 50 percent. The overall. statistics show 5 .9 percent black employment as opposed to 7 .4 percent population. The good example set by the Bay Area Rapid Transit. District in implementing a positive program for minority hiring should be followed by the Board of Supervisors and the governing bodies of all independent districts in the county. By taking a positive stand and following up by means of written reports this county can be the leader in the spirit as well as the letter of the legal and moral responsibility to provide equal opportunities. Special Districts Committee r The committee has made the following observations as a result of its survey and personal interviews : 1. Public agencies are not hiring minorities in a proportionate manner. 2 . Less than half of the districts have stated and universally understood employment policies with regard to minorities., 3. Few of the districts keep employment records which would help them monitor their minority hiring and promotion actions. RECOMMENDATIONS While there are some bright spots in the county govern- ment minority hiring picture, it is obvious that more must be done especially in the area of Black hiring. Toward this end the follow- ing actions are recommended. 1. That the Board of Supervisors take the lead in encouraging county departments , agencies, and districts to adopt affirmative minority hiring practice statements . 2 . That the Board of Supervisors require a yearly minority employment report of all departments and districts within its control. 3. That the Board of Supervisors and Grand Jury encourage all independent and inter-county districts to take part in the affirmative action program outlined in 1 and 2 . COMMENTS The members of the committee have examined a number of . hiring practice policy statements and one stands above the others . The fair employment practices statement of the Bay Area Rapid. Transit District (Appendix I) is both concise and affirmative in nature. Further, its communication through the BART organization has proved Special Districts Committee to be an effective means of inspiring an affirmative action pro- gram. Consequently, we -recommend that the Board of Supervisors use this policy as a model for the county. We further recommend that the Board of Supervisors tailor the recommended yearly employment report after the Federal Employer Information Report EEO-1. The form is the product of the Equal Employment Opportunity Commission and the Department of Labor and has proved to be comprehensive and readily understand- able (Appendix II) . The final recommendation is made with the hope in mind . that the Board of Supervisors will view the Black employment/popu- lation disparity as a challenge which would be accepted by all . districts serving the citizens of Contra Costa County. Even though the Board does not "control" the Independent Districts it is felt that the Board does have the ability to lead in a program for affirmative minority hiring action. Special Districts Committee API?I::NDIX I' BAY AREA RAPID 'TRANSIT DISTRICT V POLICY OF EMPLO 'MENT GENERAL It, is the p(--)licy of the District that: 1. No person seeking employment shall. he dis criininated, against because of: a. race b. creed tt c. color i d. national origin e. s ex, f . age, g. or, physical handicap which does not limit his ability to perform. the job 2. The District will take affirmati;Te action to insure that applicants are employed and employees are treated during ernployment without regard to the foregoing. Such action shall include .but not be limited to the following: a. Employment, uporadiizg, demotion or transfer b. Layoff or termination c. Reci uitment and recruitr_zent advertising d. Ratl s of pay or other forms of compen- sation ' I Selection and training 3. Only bona fide qualifications to perform the work shall be considered. 4. Each Department I-lead and management employee shall make imaginative and positive efforts to assure fair employment and promotional oppor- tunities for all qualified persons. 1 "I ADiVIIINISTI'.ATION • 1. Department lieacls MI*her District personnel authoricd to Mire, promote 02' TeCOn1111enCl U ^ effectively such actions, shall be responsible for in)plemcntat:ion of the spirit and the letter of this policy as well as of local, State and Federal laws and orders relating; to fair ern- ploymcnt and equal opportunity. 2. Prior to rejection of an apparently qualified employment applicant or candidate for pro-. motion who is also a member of a minority race, a District manager or supervisor con- sideringth individual will submit his reasons for rejection in writing through the Personnel i Department) to the Assistant General Manager Administration for District manage merit review i prior to final action. 3. It is the intent of this policy to develop and maintain a District staff representative of all residents of the District. 4. Consistent with this policy, the best qualified person shall be selected for employment or promotion. 1 . 4 A 17'1 JE,N L)I X 11 Forret ICO(r.^vi,;cd) ri� 7-1- NE; MNG Jl ITO App.o%rcd C01; 174.-8300? F(I tia I U ro I-!,I ywc I I t 10J-IUG OPpol'unity Convni Is Sion a Office of factor d a Contract Cc, plianc flans for I`I'rocrc:S Pro-_-rani Please use this form If box has prcbddrvsced label. r A-! A scporztL Part 11 roust I)c filed for each Reporting Unit of a. caiployar, including a Part 11 "Consolidated PcporC' stir marizin, ilio cls`a for the entire company and a resort covcring tho principal or headquarters unit. A r employzrnust til� one Part Ii"iti,its Part I form, U1441 sca OFFICE Instruc- 10,'�. FIEWFICAT,'ON tions USE ONLY Name of Company d. 7b, Peportr, tinunit for v::iich this report is filed. (Ansv;ccr in full. If a combined report covering two or more units please so indicate 9b(l) vc 8 and identify tho Prco co ,ed byLtjjC .rn cobin ePofL, a. Narr,.-of reper6ng unit IF Address and strnclt) City or tawn. County State ZIP code 9- ii, b. Emp!oyer ldent;flcz!t;on No. c. 0 ffi c e Use Only 11m (See section 11j of instructions) It. Sectors 1. Errpic;fnent 01 Vils ropn,-'Zin� in".—Report all permanent, tem porvi I or part-time employa2s unless spccifica!ly exc!I'cl�,d as set forth in r t;,,a approp-iate fi��ures cn ail lincs and in ail COILMMIS. SP�: Vill C011��idccr*2d as zeros. section 11f of the insIrLictions. E n,o 1 CS% 0 (See SOCLjon 9b(2)c! the instructions cn ho*,-1 to fill out this table-,and ls:ct;on 10 fora description of thejobc3Ec,-ories.) In colurnn-s 1,2,and 3, includa P3 cnipioy-,as M ti,,, unit, not mer:!y tilos_ in -.-.incriy groups. 1,2,3, 14 ALL EMPLOYEES MINORITY GROUP E%�?LGYEES Male Female 95(2) Job Total Male rem3le A SP-'TI;S1I Spanish categories (Col. 2+3) Negro Oriental IMCricall &Irnar.:ed Nigro orion,31 An,,26�an I a;ped nd�an 1 AImrizzn A;,nerican 10 (1) (2) (3) (4) (5) (6) (7) (8) (9) Officials and Mina'-ers.. •........................................................... ............... .............. ............... ......... .............. .............. .............. ............. Pro-'essicnals................. ...................._......_................•---_._....._ .............. .............. ............. Technicians.................... ..I................................... ............................................................... .............. ............... .............. ............... ............. Salesworkers................ ....................................................................................... .............. ............... ............... .............. .............. ............... Officeand clerical.......... .......................................................... ............... ............................. .............. .............. ............... ............. .............. Craftsmen (S!zi!lcd)....... -------------------....................................... ...................................................L......... .............. ............. .............. .............. Operatives (Semi-skilled)......-••-__----•-•--..._...__..__.,_-_-•-•-•.-._.................L................................................................ .............................. .............. ............... Laborers (Unshillad)...... ............................................... •........... .............. ............................. .............. •........ ......... ............. .............. Service worl:ers............. ................. ................... .............. .............. .............. ..... .... .............. I -------------- ---------- TOTAL—> Total employment from previous report (if any) (The data below shall :fso be included in Ithe f;zures for the appropriate occupational ca,h?o.iss OL'Ovo) On-tha- jobWhite collar ....... .... ..............;... ... ... .............I...... ... ......... .. . .............. • trainees' Production.... ............ ................... . .............. . ............ .........I.,...........a-I Produc I...................I . -­.....I - . ... ............... I See explanation of "mincritty wentificn-tion" in section 97)(2) o,' 6-2 instructions. The term. "Spanis:i Cvrnj!-o,-;.1 Americin," inclUles a, persons of Mexican. F'unrtto, IticLm, Cuban, or Spanish oriZin.Tha U2rn I i, "Arn--,rican Indian," dc:!s not include Eskimos and Aleuts. 3 Report only emp!oy,yes cnro:1,:11 in fotrnd owth2-job tr3;nin% pro7ranls. j Instrue• Section G--cl:ii LOYI.-NT DATA—Continued tions 11x, 2a. Dries this^apo tins Unit employ apprentices? 4, Dates of payroll p^riotl u_.^d—'tc t should `tither and rcF 11y 1 ❑ Yes 2 C] No ernployrtcnt daia of Gro repo:tin� unit durin,; only one pae b. If ''Ycs," is Appre.,tice:Trip Schedule A attached? period in Deccrnbor; ,L=.nur,ry, Fetoruary or l:i;rch. i.iulti-est,�aii stent employers need not u�c t.t_.,.tmc payroll period for ail ort 1 ❑ Yes 2 ❑ tlo—Apprentices were reported earlier on Apprentice- ................................................................................................. ship Information Rcrort Ef_0-2 5. Date of last report submitted for this reporting unit................ 3 ❑ Ho—other reason (explain in Section I "Remarks"). .................•--•..........................._........_....._................................. 3. Flow %vas information as to race or ethnic group in section Gl Noobtained? ❑ o report filed for this unit last year. Please note that blase data m ry be obtained by visual survey 6. Are there any employe: facilities (i.e., drinking fountains, r 9b(2) or post-crop!oymcnt records. NoiOlcr visus;t ser s nor pst room-, recreational areas, lunchrooms, etc.) at this repo employrur-n, records are prehibi;ed by any Federal, State or local unit whic{t aro provided for empluyees on a racially separ law. All sp cific--d data are required to b^ f;i!ed in by law. basis? t 1 ❑ Visual Survey 3 ❑ Other—Specify.............. 1 ❑ Yes . I 2 f—} Employment Record ............................. 2 ❑ Ido Section li—f:_!'Or:7li ; UNI I.:_=O __1710P7 1. Indicate by marking in the appropriate box the type, of repo Icing unit for%v;hich titin cop;of the form is submitted (MARK ONLY ONE BD (1) ❑ Single-establishment Employer Report I (3) -❑ Principal or Headquarters unit Report frfulti•establishntent Employer: (4) ❑ Individual Establishment Report (submit one for.ea } 2 Com an aide Consolidated Pe ort establishment) The following are desinatcd "Combined Reporting nits" and are described in Section Ee of the instructions. They are optional reporting alternatives and should be used only after consultin., the instructions. All Combined Reports must include an a:tzchm=nt givinZ- the address and total emp:oyrnont of each establishment covered by the roport. Note that (5) through (9) may ba app!ied to cstabiishn•,ents in the R_;ail Trade, P;ho!esalo Trad Finance, Real Estate, and Service Industries,regardless of size,as wall as establishm,_hts with Icss than 50 employees in other industries. <,.. • (5) ❑ Dsrgs n ,eJ Ciay of -------------------------•--..................----.--....... (10) ❑ Sna!I Establrshnrant Rep;:rt catering establishments ., (6) ❑ Standard Met-opo!itan Statistical Area of '"""""" less than 25 employ-c; (ntrist ba accornp�nicd by a l "j""""• showing emp.oymant fi,r,urs by occ!:pzti_'n and State). t (7) ❑ Standard f.lctropeiitan Statistical Area excluding establish- ments located in the "Dzsignatad City" of....._.._. ( ) ❑ Report rrunder pa Special Rzp yrting Procedure obtained •----- 11 pear v it'cn a-m's on of the Joint F;eporting Ccmmiac (3) ❑ Standard f,%Are;tolitan Statistical Area of ..................... . ........................ covering only establishments in the State (12) ❑ Other—Explain. ............................................................... Iof .............•--.........................................._...................._•--.-•--- (9) ❑ State of .............. -------------------------------------------- excluding all ...........•.......................----..........--..............._............... Standard Mctrcpolitan Statistical Areas. ...................................................................... J t 2. If you have roa,,:ed (1), (3) or(gib) abovc—is the location 3, is the major activity it this re orting unit the same as that Or-FIC-= t of tl e estabiishr,aril the sa ze that reported st year? reported last year? t Ugc I 9b(3)(b) 1 ❑ Ycs 2 ❑ No 3 ❑ leo report Inst year 1 Ej Yea 2 rJ No 3 ❑ No report la_t year ONLY 4. What is t;ta major r.c;ivity.of this reporti(7,,' unit? (Ec product or type of service provided. "P,lanufacturing," "Whole- — i.e., mmnu,'acturing strcl c<atir,,s, retail f;r"ear, v,t,ol ealc Sale," "iCetail," "Processing," "Sai•�s," etc., are not su(:i- plumbing supplies, title in_.utance, etc. include tite type of cunt.) 9,W) , (c),11 r Scccion 1—.^.="JA 1,"S Use this itern to give any identification data appaarin� on last rj:por wench differs from that given above, exp!ain major changes in empic Ment, changes in composition or reportin units, and oth:-r pc:tinc•nt info ntaticn. - ti ccfic't J—„•u , i'U::�.,r:C"�li..cr ,1 :i"{': . (fo ba an>:•'arcJ D,n uc:,r��na`-_d o;�ici�l of th.. ,,,,�ortir.�Unit) Plcsc note tat:..: the sir:atura of a rani:onsil,le Ftp:rtoriint; Unit i;; not rcq_!ir•^c! if VII F,.,ri li reports arc preprved at heti:hivarters :.. ` 9b(4) siCn,-:d for in Part I. In that .at, ci:ecl: the d;:::i,;,.it::;l box io i;! ., of dna:ure. All Cllr•r inform;tiun in thi> Section nr.rs; be comp!--o. t i f Cheek hcrc if.si,ned for Ly a company haaddu^neer,official in ParO ❑ Titla — Cit; a::d Sttta I ZIP cute ! I 1n the Board ' of Supervisors, of Contra Costa; County, State of California December . 7 j19:,,71- In-the 9:'.1..In-the Matter of. Supplementary Repnrt' of the Law Enforcement, Cammi_ttee . , , of the 1971 Contra Costa' County Grand Jury.: This,. Board 2 avirig receiv4d a copy of a Supplementary Report of the Law Enfo�°oemient�. Commit tee of the 1971 'C ' cntra. Co's to County Grand.' Jury related t�o' the operation of the Contra Costa County Jail a.t.Mar.tinez and the Contra Costa- County, Rehabilitation Center at Clayt.on9 On motion `'of Supe`rvsar E. `A. Linscheid,, seconded by Super- visor A. M: Dias, IT IS BY THE BOARD ORDERED -that 'rece:lpt* of 'said report is ,ACKNOWLEDGED and same is referred to 'the County Sheriff.-Coroner• ,and, the County Admi iistrator:l The foregoing.''order was passed- by the ` following vote: A.YESo.' ; Supervisors. A: M. Dias, .J.. E M©ri'artys E. A.• Lins the .d, . J. ,j1 Kenny. . NOES,: Ione ABSENT: Supervisor V. N. Boggess I hereby certify that the.foregoing is a true and correct.copy of an.order entered on the : minutes of said Board of Supervisors on the date aforesaid. c c: Grand Jury Witness my hand.and the Seal of the Board of Sheriff Supervisors Administrator affixed1 this th day of December , 197 W. T. PAASCH, Clerk By f Deputy Clerk Laurette Kincaid H 24 4n I, I OM: F • •Release Date: 11-24-71 . SUPPLEMENTARY REPORT ON LAW ENFORCEMENT BY CONTRA COSTA COUNTY GRAND JURY This Grand Jury, after continuing investigation into the operation of the Contra Costa County Jail at Martinez and the Contra Costa County Rehabilitation Center at Clayton, report our findings as a supplement to our previous report on "Law Enforcement." 1. We are deeply concerned over the security, or rather the lack of it, in the selection and supervision of prisoner work crews while working outside detention facilities. A. We found little or no screening of prisoners selected to work on prisoner work details insofar as their criminal records or background were concerned: only their T o � cooperation as "workmen" being considered. . This is due in part to the fact that the Rehabilitation Center does GO a z X40 not receive the criminal records of their prisoners ("rap � O7 sheet) when transferred to the Rehabilitation Center. The probation report, if any, on a prisoner usually does W J m not arrive until weeks after.,-the prisoner. Because the Rehabilitation Center is a minimum �I security facility it is presumed by our officials in charge that any prisoner sent there is not a security risk nor represents a threat to the public even while working on civil job work crews. Any prisoner, regard- less of his criminal record, may be placed on a prison work crew by a civil clerk subject only to a night deputy' s approval--with No knowledge of the prisoner' s record. C �. 911-1(-"U�Law Enforcement Committee B. We found the supervision and surveillance given prisoners while working under a civilian supervisor to be casual even for a civilian .workman and when applied to a work crew of prisoners, this borders on negligence. Prisoners assigned to a work detail are turned over to the custody of a "deputized" civilian supervisor who is responsible for them until they are returned to the Rehabilitation Center. This supervisor, while technically deputized isnot considered to be a policeman, nor is he given any special training, instruction, or even written regu- lations by which he could be guided in providing adequate surveillance to prisoners. He is not allowed to carry arms of any kind, nor does he have any knowledge of the criminal background of the prisoners on his work crews for which he is responsible and has custody. We therefore conclude that the present method of selecting and supervising prisoner work parties is lax, providing inadequate security to the public, and urge the Sheriff of Contra Costa County to promptly correct this method of operation. 2 . We are equally concerned over the lack of adequate security within our county jail at Martinez. Under present condi- tions of severe overcrowding and the general inadequacy of our jail, a prisoner is placed in jeopardy when put in our county jail. A new prisoner is all too often subjected to brutal sexual and Law. Enforcement Committee Law Enforcement Committee I In the Board- -of -Supervisors of Y Contra Costa Count , Stafe. of California November 9 19: In the Matter of Report of Probation -ComYriitt,ee of the 1971 ` Contra 'Costa .County Grand :,Jury. _ The Board having -received a copy of. th:e'' report, of the.. Probation .Committee of the 1971 .'Contra _:Costa County Grand Jury; and -,-The- Board having heretofore, arranged to have the Board Chairman-, James P. Kenny, and Board: Vice Chairman, E. A...-Linsch.eid., meet-.with said committee to.. discuss- its report;.. NOW, THEREFORE, on motion of Supervisor_ W,. N. Boggess, seconded by Supervisor A.• M. -Dias, BE. `IT BY THE BOARD ORDERED that receipt of said report is ACKNOWLEDGED, and it i's;' REFERRED- to the aforenamed supe•r.visors Nand the County Administrator. The foregoing, order- 'was - passed by the- following vote of the Board: AYES : Supervisors A. - M. Dias.' J. E.; Moriarty, V. N. Boggess , E.I A. Linscheid,. J. P. Kenny. NOES : None . `ABSENT-: None hereby certify that 'the foregoing is.�a true and correct copy of an order entered on the minutes-of-said Board of Supervisors`on the date aforesaid. cc : 'Mr. Al yme r B. Hus se y Witlness my han8. and the Seal of the_Board of Supervisor .J.P. Kenny. Supervisors Supervisor E."A , Linscheid affixed this 9th. day of November , 1971 County Administrator. W: T. PAASCH, Clerk County Probation Officer` By �( �6 Deputy Clerk ,Miriam -A. Scott H 24 4n i IOM r. CIL PROBATION. COMi`1�ITTEE —__ RECD �at� Alymer B. Hussey, Chairman 8 17I Leo Armstrong . W. P ��3C.H William C. Beck CLE1 K POP,'] OF S1JPFRVISORS Mrs. Bernice Lasell` co co r� QY '. Deputy G Stewart Paul - The objective of Contra Costa Countv' s . probation system should be the rehabilitation and return to society of the optimum number of juveniles and adults whose problems and offenses have brought them under the supervision and control of that system. Comments or recommendations made herein are the result of that point of. view. We believe that everyone, at whatever level of county or city government they may be working, who has anv relationship to the problems of delinquency and crime should accept this objective as the final goal of their own actions . . Anyone unfamiliar with this subject might assume that rehabilitation is the exclusive concern, of the County Probation Officer and his staff. It is not so: A great many other people are involved such as : The Board of Supervisors ,. The ten Superior Court Judges , The Juvenile Justice land' Delinquency Prevention Commissions , The Social Service .Department, The Sheriff' s. Department; The Justice and Municipal -Courts , The . City Police Departments , The 800 licensed Foster Hornns in the county, The fifty or more private and volunteer organizations ,. both within and outside the .county, who offer rehabilitation, treatment and. support Services , Also the Federal and 'State governments which offer programs and support. services to . the counties. Combating delinquency and crime with rehabilitation Ca.C. ProbationCommittee u� programs -js a very . complex problem involving many persons and units of government who are relatively independent of each o,ther..,. Success in this effort requires the constructive and wholehearted- understanding and cooperation - of all. To .the extent that anyone takes expedient action based upon a narrow personal point of view,: the efforts of others will be minimized, even nullified. At the risk of our seeming ,nave to expect so many people to voluntarily integrate their 'individual efforts effec- tively, we unequivocally state that it is the county' s only hope of real and significant progress in- the rehabilitation of its delinquents and.- criminals . It is also the only hope for control- ling the rapidly rising cost of such offenses .in ~the. county. We will refer back -to these ideas at various times ,later in this report., One further comment is necessary to make clear the manner in which the Probation Committee approached its investiga- tory responsibilities. We did not visit every facility nor inter- view every possible person or group that is involved in probation matters . We chose areas of probation activity in which there might be the greatest need for, or opportunity to, effect i mprovement. PROBATION FACILITIES Group Homes There are five group homes for boys; four of which are at. Las Trampas Youth Village located in Bollinger Canyon at 36 Holly Court, San Ramon, and the fifth is. the Walnut Creek Group Home at 2870 Kinney Drive. Group homes for girls are maintained II Probation Committee i by a private agency, Youth Homes, Inc. The .intended purpose is to furnish a "home-like" atmos- phere in which six boys live under the care of a "house.. mother" and the supervision of a Probation Department staff member. The boys attend local- community' schools. except at Las Trampas Village (Bollinger Canyon) where some schooling is provided on the. grounds when needed for individual boys . Las Trampas Youth Villagel(Bol.linger .Canyon) The San Ramon address of this group of homes is mislead- ing. They are located deep in Bollinger Canyon, about eight miles northwest of the town of San Ramon on a former Nike missile site which the county is .in the process o�f . acquiring from the federal government. The site involves some eleven acres of land and other buildings. The five houses. now used as group homes were the residences of missile crew officers .. We are told the other build- ings on the site are not in usable condition and that the cost to make them so cannot be justified. We are also told that the original concept .in 196b, when the site was taken over , was to create another Boys ' Ranch similar to the present one at Byron. This appears to be an extremely remote possibility at this . time. This - Grand Jury, as were preceding Grand Juries, is convinced that their operation is far too costly to justify their _I indefinite continuance. Based on budgets .for the period ending June 30 , 1971 and the stated population capacity of each facility, the- cost of operating this facility compared to others is as I follows: I i I Probation Committee Bollinger Canyon - $1,200 per month per boy Walnut Creek Home 760 Byron Boys ' Ranch - 682 Juvenile Hall - 7861, "Based on actual average daily population . of '161 during 1970 . Stated capacity is 85 . These figures speak for themselves. We recommend that plans be made now to phase out the Bollinger Canyon homes as early as possible and to replace them with equal or better homes where the boys can live and attend school in a normal community rather than in isolation. We make no judgment on the Board of Supervisor ' s origi- nal decision to acquire the missile site., That is history. The land and buildings are said to have a value approximating $90,000 .00. Some use by the county was necessary to start the acquisition process and the use of the cottages as group homes was the .most attractive idea at the time. But this use has been con- tinued far too long with, apparently, littleeffort made. to find another. Again, . let us look at the economics of the situation. Assuming the excess cost to be $400.00 per .month> ner boy (a figure justified by the cost comparisons above) , our annual excess cost is 400 x 24(boys) x 12 (months)=$1153200:00 .. Thus, the excess costs appear to exceed the value of the property each year of operation. The need to eliminate this budget -drain and taxpayer burden is critical and corrective action ought. to .Ue -started at once. The physical appearance of_ ':the cottages and grounds were unattractive. Uncut grass and wee ds everywhere. It. was Probation' Committee obvious that the. ma.intenance of this property is carried on barely above the level of neglect. If we are trying to give the boys a- home-like atmosphere, zae should also give them, home-Like work assignments. There is no logical reason why each 'boy should not have some home 'duty or ,duties to perform daily, including grass- cutting and weed pulling. A sum-ii-ier time vegetable .garden would, provide fresh food and a healthy, constructive therapy for them. Walnut Creek .Group Home Except for its location and lower cost per boy, this home is subject to about the same critical comment a.s the Bollinger Canyon. homes. The home is located in an acceptable neighborhood of private homes. While the committee did. not interview any of the neighbors,, there is reason to believe that is is generally accepted by them. However, this does, not mean that the good will of the neighbors is assured on a continuinn basis unless the home .is maintained in keeping with the standards of the neighborhood, or if the boys ' conduct is not properly controlled. Whether or nota home-like, .,at_mosphere exists in this i house .is open to some q estion in view of the dilapidated condition of almost every piece of ,furniture in it and the deplorable condi- tion of the rear yard. When the house .was visited in late March, the rear yard was a jungle of high grass and weeds and defaced by the presence of a collapsed plastic wading or swimming. pool and- . , general disarray. While a system of rewards' for good conduct and penalties I Probation Committee I _ for poor conduct was in use, there was no apparent program of assigning specific daily chores around the house to each boy. Here, again, an opportunity for heal thy work therapy and responsi- bility training is being missed. It was mentioned to the committee by .the home supervisors that there had been come unfavorable remarks made by neighbors, against having a car parked on the street all day bearing the county seal identification. The presence of the car raises ques- Lions by the neighbors ' friends who come to call and this stamps the group home as something abnormal in the community. We recom mend that some way be :found to overcome this fac-tor,: which is :an embarrassment to -the boys as well , by perhaps providing a means of covering the county` seal while the car must be parked there or finding a nearby vacant garage in which it may be stored during the day. General Comment on Group Homes The - Group Home idea is to place delinquent boys who do not need the tighter controls of Juvenile Hall in a home-like atmosphere approaching that of a real home., We .;seriously question whether this purpose is being achieved. First, there are no "parents" , such as a married couple would represent, in the home. The house mother is p-r.esent. 24 hours daily with minimum authority` while the home supervisor who carries ,the maximum authority is ,present normally only eight hours . Second,, the house mother and supervisor are unrelated family-wise and their supervisor-subordinate relationship i,s far from being .representative of real parents or even .foster parents . Probation Committee This fact is not lost on ''the boys . The atmosphere at the homes is .probably little -different from that in the public schools they attend during the day — constant supervision without the precept and example ofmarital and filial love, They are living a system- a_tized life, nota family one. This is not the fault of either the house mothers or home supervisors. They are all sincere and dedicated people: who, are filled with compassionate concern for delinquent youths . We respect them for it and commend their efforts . It is the inherent weaknesses of the basic idea which cause it to fall short in the effort :to .give these ,b.bys',a true .home-like-atmosphere. We.will -have -more to say about this when we discuss the use or non-use of. foster homes. Boys ' Ranch at . Byron _ This is a minimum security facility of good quality with a capable staff. Its stated capacity is 65 . The Probation Depart- ment reports an average daily population of 60.6 during 1970. Because of its superior quality it would seem desirable to keep it operating at full capacity, or somewhat above, in view of the " extreme overcrowding at Juvenile Hall. The principal disadvantagelof this facility is its . remote location away .from the county' s major centers. of population. Much time and money .is spent in traveling between the R,.anch and Martinez and the western sections of the county. Furthermore, the distance and lack of public transportation creates- a major ' obs,tacle for- some families wishing to visit their sons. Equally serious is: the transportation problem for those boys' who work part of the week and Probation Committee serve time at the Ranch the balance of_ the week,. Most of the available work ,is in the western county area. Since work/furlough programs are increasing as a produc- Live means of rehabilitation, we believe that another facility similar, to Boys ' Ranch is needed in 'the western side of the county: The term "ranch" is a misnomer, suggesting wide open spaces , and one .may wonder where such an is to- be found in the west side. It is the nature of .the facility that is important, not its geographical scope.. At Boys' . R-inch, the boys are given specific work assign- ments in addition. to their schooling, counseling and recreation. They mow -lawns, weed and trim, and do other maintenance work with- in their abilities. This is in sharp contrast to the lack of such assignments at the group homes . Juvenile Hall-Martinez Section 851 of the Welfare and institutions Code . provides : "The juvenile hall shall not be in, or connected with, any jail or prison, and, shall not be deemed ti be nor be treated as a penal institution. It shall be conducted. in all respects as nearly like a home as sible_ pos (Emphasis ours Contra Costa County' s Juvenile HalL falls so far short of provid- ing a home-like atmosphere and is built and operated so much like a jail, that we can- only consider it to be in complete violation of the Code. This facility was, designed to house 85 ;persons .when built in 1950. During the year 1970, it had, an average daily population of 161, . 189 of design capacity. The highest Probation. Committee population occurred in February 1970 at an average of 210 which . is 205% of intended capacity. The crowding is so great that three boys (or girls in the girls ' wing) sleep in a room (cell) intended, for one. Since the rooms are too small to hold three cots, one boy must sleep on the floor, his mattress being stored under one of. the cots -during the da�. The ventilation and' he'at'ing are poor and, as at the group homes , the maintenance is at a low . level. As a result, conditions in the boys ' section border on the inhuman. Committee .members visiting this facility for the first t,ime . felt ashamed and embarrassed. The condition has been reported in numerous Grand Jury -reports in recent years so no pur- pose will be served by repeating the sorry details beyond what has been said above. Suffice it to say that locking a boy into one of these cells is not a first step toward his rehabilitation; it is more likely to be a step toward more serious offenses against society in the future. Conditions in the girls ' section of the Hall are not materially better. The Girls ' Residential Treatment Center, which is the third section of Juvenile Hall, stands in marked contrast to the. j other two sections. The space occupied was completely remodeled and renovated in 1969 . It is clean, well lighted, properly venti- lated and .tastefully decorated. The program in this Center pro- vides formal schooling, training in homemaking., counseling, preparation for. employment, free-time activities and family involvement. G This is the most constructive effort toward true t Probation Committee 4: rehabilitation that the Cor' nittee has seen in all of its institu- tional visits. It was shocked, therefore, to read the following . comment in the County Administrator ' s, 1971-72 budget submission- to the Board of Supervisors referring to Juvenile Hall: "Some relief from the constantly overcrowded facilities has been gained _ this year_ by reducing .the Girls ' Treatment Center Program and using the: vacated rooms for detention of delinquent girls ." This is not progress ; it is retrogression: With regard to new commitments to Juvenile Hall, the Probation Committee is unanimously and firmly of the opinion that boys taken in=to the Hall. for. the first time who have not yet -been . adjudged delinquent must not, under any circumstances, be placed in a cell with boys who have been so adjudged. Aboy may have shown some delinquent - tendency, but until- he is legally declared delinquent, no contact with a delinquent boy should be permitted. Delinquency, in a sense, is a disease which spreads rapidly through personal associations . On September 26 " 1971, there were 81 delinquent boys and 49 delinquent girls , a total of 130, in Juvenile Hall. _ This is a gratifying decrease from the peak population of February 1970 , but it is still 45 above the Hall' s design, capacity. If new programs are instituted and actions taken, fully utilizing existing programs , including foster homes , the overcrowding of the Hall. can be eliminated. We recommend that no boy or girl - be detained at Juvenile Hall longer than 21 days. This should be adequate time in which to process the child' s case and- place him or her in one of the i _ Probation Committee f programs outside Juvenile Hall . Of the 81 boys in- the- Hall on September 26th, 21, or 25%, had been there in excess of 21 days . Of the 49 girls being detained, 24, or 50%, had been there over 21 days. Two .boys had 'been there 151 and 168 days , and two girls . were there 110 and 117 days respectively. Admittedly these were difficult cases to place. Nevertheless , we are convinced that if all agencies involved within the county were working together as closely as they should, these cases could have been disposed of in much less than five months. The Probation Department = General Organizationally the Department seems to be well set up and staffed with capable and dedicated people. While we found some differences of opinion between lire and staff personnel and between management and union as to policy, operations and programs, we foundnoevidence. that these differences lessened anyone ' s cooperation or dedication. Through the medium of branch offices; the Department brings its services into the various population centers of the county. We feel that the hours of a probation officer must be flexible; it is not an 8-5 job and the Probation Department should f not close down completely at 5 :00 p:m. Problems are not limited to an 8-5 period. Services should meet the needs of the people. The committee' s greatest concern is that the Department is not adequately staffed to fulfill its purposes. Probation officers -are .overburdened with cases and investigations . I t is- patently obvious that if. there is to be rehabilitation of offenders , the probation officers must have adequate .time to .devote to each Probation Committee casea. The number of ..investigations they are asked to perform should not deny them that time. The work load standards set by the County Administrator . are as follows: Investigations Cases under Supervision per Deputy per Deputy per monthder month Adult Division 20 130 Juvenile Division 20 80 Investigations are conducted by Deputy Probation Officers to develop background information on. persons who are before the Court for specific offenses . The information developed is used as a basis for decisions by the Court as to whether or not such a, person may be safely placed on probation in lieu of jail, and, if so, under what terms and conditions. The Deputy must search out every possible source of information, interview family members, friends , neighbors , employers , priests or ministers , teachers , etc . , until .he is satisfied that his information is reliable and suffi- cient to ufficient . to form a basis for an action recommendation to the Court. At present, in this county, he does this xork practically alone with little, if any, clerical_ assistance. "Cases" are persons on probation who have been assigned to a specific Deputy Probation Officer for supervision. Some proba- tioners require more intensive supervision than others depending on the severity of their offense and the prescribed conditions of the probation order. When properly performed, this supervision ,requires the Deputy to make personal visits L o the probationer ' s home and place of ,employmen.t, to interview otlher .persons when. necessary to �I Probation Committee learn how the probationer is conducting himself in the -community, to counsel him when circumstances warrant, and to assist him in solving problems that arise which he seems unable to work out alone.. Investigations and Case Supervision are very time consum- ing activities. Professionals in this field consider a work load of 35 to 50 Cases and b to 10 Invests ati.on: er DeRui v per month to be a ro er work load. When such excessive work loads are assigned, as is done in Contra Costa County, something. has to "give" . Since the investi- gatory work is so important to the Courts ' handling of their cases, it is usually done to the best. of the deputy's ability. It is, then, the supervision of probationers that is inadequate :For. lack. , of time. and clerical assistance. Probationary supervision Properiy performed is vital. to the whole rehabilitation effort. In preparing their 1.971-1972 fiscal year budget fcr sub- mission to the Board of Supervisors , the Probation Department requested the following additional positions : 15 Deputy Pi-oba.tion Officers 3 Probation Supervisors 23 Clerks and typist clerks 1 Training Officer b Probation Trainee posi.tions I Adult Probation Resource Officer (To develop emplo�.nent and educational resources for probationers . ) 1 Adult Probation Jail Liaison Officer (To assist probationers with jail terms as a condition of probation. ) 2 Delinquency PreventionOfficers (Por Yti expert guidance .to local groups and with special emphais on drug abuse, coordinate delinquency prevention efforts. at the local and county levels . Also to work closely with the Delinquency, Prevention Corminission. ) Total - 52 Probation Committee When.. it was passed along to the. Board of Supervisors, the County Administrator ra�coixirtened only, 12 positions: 7 Deputy Probation Officers, 3 typist clerk osita_ons and 2 Probation Supervisors. The balance of the request was left up to the Board as "policy" decisions . The Boa-rd of S-�.j.p--rvisors vcted negatively on both policy matters thus giving tihe Pi obation Department only the 12 additional positions recornnerd6d by the Administrator.. In rejecting 77% of the Probation Department ' s request, the. Board seems to have paid little attention to some significant comments made by the Administrator in his submittal, For e>ample: "As can be' seen from the work load statistics shown above the activities for whish the Probation Department are respon- Bible are continuin.g at the r_apid�Yt;e of increase that has been revalent for the last few years . . . "In additibn to the change in juvenile cases , the adult cases under supervision are. expected to increase more than norma]- case load growth due to the nccessitY of picking up cases from thy^. Intensive Supervision units as they are phased out-. . . .the additional posi_ionsr.ecomriended. should allo,a reasonable, althou—i far a roni ideal, case load assignments. . . " The emphasis in the above quotations :is our own. This committee does .'not agree with the use of the word "r.ea.son=ib1_e" . in the last quotation. As one example, a training officer has bee» reques.led by the Departme it and recoimnended by otha rs over a number of years without success. We fully concur with this request. It is the opinion of this 'conrittee that the full request. of the Probation Department is reasonable and urgently needed, We Probation Committee j recommend that the Board of Supervisors reconsider its decision. We are faced with an anomaly in this case. The Chief Probation Officer is appointed by the Court and is responsible to the Court for departmental ,results . But the •Board of Supervisors controls the purse strings , hence, unless they act wisely upon the requests of the Probation Department, they can frustrate the efforts of the Department, and the. Court, as well . This is a point at which the closest kind of understanding and cooperation, mentioned in the beginning of this report, is needed. Parsimony where the probation activity is concerned is clearly false economy. Crime and delinquency are increasing for a variety of reasons well known to all of us . Under policies favoring detention, the county' s facilities; are too small. to hold all. offenders. The cost to society keeps rising apace. Only a small percentage of those jailed are beyond saving, but a great and coordinated effort is needed to save the others . Effective rehabilitation, education and counseling is the only practical, way to solve this problem. The organizational machinery for this purpose is set up and working - but working at low speed. and efficiency because of the financial brake that Molds it . back. AN ADEQUATE INVESTMENT IN REHABLLITATION NOW WILL BE PAID BACK IN REDUCED CRIME AND DELINQU NCY IN FUTURE YEARS , OTHER DEPARTMENTS AND AGENCIES The Juvenile Justice Commission The Delinquency Prevention Commission The Probation Committee attended the monthly meeting of Probation Committee } these Commissions on September 13th. After their formal meetings were concluded, we reviewed the entire ' fiE!ld of probation and rehabilitation with them and the role they play in i.t. We were happy to find ourselves in agreement. w4 th the Commissions in just about every factor involved the possible solutions.. This giv`s us great. hope Lh:it the permanency of the Commissions, contrasted with the imper-manence of Grand .Juries , will result in many advances in the county' s efforts to rehabili- tate delinquents and reduce their_ future numbers . WIhile they are advisory commissions only, they are directly representative of the citizens of this .county and, as such, deserve the respect and attention of all public officials. Foster Parents Association We met on September_ 20th with the Foster Parents Associa- tion. Their records as foster parents; prove beyond question their great capacity for love and compassion toward the foster. child. We are prepared to believe that the great 1najority of Foster Par- ents have these same qualities in major degree. One must have the greatest respect for parents curio are willing to take a pre-delinquent or, delinquen` child into their home and raise that child with their own natural children. They represent a tremendous asset to society which should be ttsed to the maximum degree in rehabilitation programs . They are the ori1Y ones who can provide a true home atmosphere for such children. No institution can .do so. There are, at present, approximately 800 licensed Foster Homes in the county. Day care oniyjis provided in 309 of them. Probation, Co,�rmittee Full time 24-hour care is pro-Adel Ln x,31 homes , two of which , care for not" only the child true a parent also. The Foster Parents feel rhat their services are not being used by Contra Costa County to the extent they should be. Once licensed, a new Foster Home zrJay wQi..t as long as two years before receivin a foster child. Corsideri.ng the conditions which must be met by the Foster Farents. before they can be licensed, and the delay (someti_me' s 1-0 to 12 month,) before the .license is issued, it is frustrating and discouraging to wait so long to receive a child. The result is that some Foster Parents turn to adjoining counties to obtain children. Contra Costa County is the loser when they do so. In explanation of these delays , both the Probation and Social Service Departments point out the need to select with great care the home into which a child will be placed. They must be sure the roster Parents selected can cope with the characteristics of the child involved, e,g. , tbev avoid placing a child who comes from a very poor .home into an affluent Foster Home. Other factors such as religion and state of physical. or mental healt1h must be considered, etc. The Probation Committee does not feel qualified to judge whether the Foster Parents are expecting the machinery of government to move too fast, or whether our government agencies are being overly cautious and simply moving at traditionally low speed. We ,do, however, declare ourselves fully convinced that Foster Hordes are the most effective means of rehabilitating neglected and delir.- quent .children. We urge our county'Iagerci.es to move forward I Probation Committee expeditiously and in the closest cooperation with each other , to utilize the available Foster . Homes to t1ne fullest degree and 'to recruit and license- more of them. One handicap to recruitment must be the rates of 'com- pensation paid for child care. At present these rates are : (1) $10� per. uior.iLh for ch.i. _dr.efa through age 6 . (2) $110 per r.onth. for children ages I through 11_1. (3) $12:5 per month for children ages , 12 to 2.1 . Separate approval of the Board of Supervisors may be obtained for special cases involving crippled children and others requiriig special nursing or medical care while in the foster home. The Committee is unanimous in its opinion that these rates are tock low for today' s level of the cost of living. Eve do not presume to be expert enough to say how much higher they should be, but we recommend that studies be instituted promptly by t 1h._ County Admin .str.toy ' s Office in cooperation. with the Delinquency Prevention -Comriission to determine the basic costs currently b ;4r�g ex erienced by Foster Homes and set compensato--y new rates accordLigly. The supervision of dependent children. was trans ferrr-,d this year from the Probation Depart rent to the Social, Service. Department, the latter Department 'riving the responibiJ,ity to recruit and license foster homes. The Probation Department uses and supervises these foster homes as long as child-ren 'under their jurisdiction are in those homes. We know of no cases where a child under Probation' s jurisdiction and another under the jurisdiction of Social Service are in the same home. Here, again Probation Cormnittee we have a degree of divided responsibility between county agencies, which requires the highest degree of policy coordination, coopera- tion and understanding if the interests of the foster children are to receive first consideration. Contra Costa County Emplyees Association We met with the Probation Services Unit of Local #1 to learn their points of view of the probationsystem and program. They were most helpful and forthright in these discussions. . We were particularly pleased with their constructive attitudes and genuine concern that right solutions be found to the complex prob- lems of rehabilitation. We recommend that the 1972 Grand Jury give them .a similar opportunity to expar_d on' the ideas presented to us. Their contribution. to us was related largely to the 'Problems of adult probation which. they compiled in a 40•-page brochure entitled "A Report to the Grand Jury on County Detention Facilities and Operations of the Probation Department" . Time and space. do. not permit our going into detail as to the con- tents of the report, but we recommend to the county agencies concerned that they secure a copy of it for study. A comparison of their reco=,endations and our report will show we are in . substantial agreement. Deputy .Probation Officers A meeting was held with a representative group of Deputy Probation Officers who were chosen at random. They were found to have probation experience ranging up to more than 20 years. By Probation Committee E the end of the meeting we were convinced that the Probation Department is staffed with very capable and dedicated deputies . There are things they wish to see changed and they have. understandable concern for the slowness with wizich desirable . changes come about. So do Grand itirJos ! They will see in this report-that many of the Committee ' s recommendations. coincide with theirs . CONCLUSIONS Throughout the . year the Probation Committee 's interviews and inspections have brought to itsattention all the contrasting opinions and points of view of those most concerned with. the probation system in this county and its present means of dealing with the problems of crime and delinquency as the probation effort relates to them. The important question is, are we achieving the objective stated in the. first paragraph of this report? The efforts of .our Probation Department and related agencies are succeeding to a degree, but in the opinion of this committee, it is a small, degree compared to what needs to be done and what can be accomplished. The county is spending large sums of .money in . the Proba- tion Department and the facilities under their. management. The Department ' s gross budget in the 1971-1972 fiscal year will be . $5,555,144.00. In this report we have made recommendations which, if adopted, would increase that amount slightly. The question is not really how much money is being (spent, but rather how it is being spent - on what kinds of facilities . and what types of Probation Committee I programs, ` etc. The committee is concerned that the County Administration is headed for still greater outlays � of capital funds and operating expenses in the belief this will produce the desired result based on present policies and -philosophies . After ten months of study into these matters , this committee has concluded that thereistoo much emphasis on jails and detention facilities and not sufficient effort made in treat- ing delinquency by means that lie -outside such facilities. . Contra Costa . County is planning -to build bigger detention facilities while other counties in California and across the nation are utilizing more modern and . productive techniques and programs . . Our .County Administration seems to be quite stubborn in this matter of detention facilities and quite out of step with the desires of their constituents . Proposed bond issues with which to build a new jail .and to remodel and enlarge Juvenile Hall have been rejected repeatedly by the voters, yetthe county has set up a non-profit- corporation under the name of the .Contra Costa County Juvenile. Facility Corporation to finance and. build expanded Juvenile Hall facilities. WE BELIEVE THIS TOTAL DISREGARD AND CIRCUMVENTION OF THE WILL OF THE PEOPLE IS WRONG AND SHOULD BE STOPPED. Unfortunately, pnd to thecommittee' s disappointment , the Probation Department seems to be in complete agreement with this action. They too, seem to be enamoured of detention facilities as the most desirable first step in dealing with delinquent children. We do not agree. Such detention is necessary for only .the most hardened and unresponsive delinquents and they are a small minority. Probation Committee The existing Juvenile Hall is L-ar. t-.ough. to house this type without further, expansiorn if effective action is taken to provide for the other types in programs outside of the Hall. . The popula- tion of the Hall is down this year fI-C"ITr last, and it can continue downward if these programs a.,e utilize rl There .,has been nolack ori' i_�i ::as an(:! action r_ecoir�renda tions to both the Board of Super-vissrs and the Probation Depart ment by which to acco.nplish this result. Other counties and states have demonstrated that it can be done. The Juvenile Justice and Delinquency Prevention Commissions , The Fester Parents Association, the Employees Union, various .private . agencies, past G-rand Juries and even the Probation Department' s own peoplewho live with the delinquent probationers daily, urge that bigger and better deten- tion facilities are not the answer. All of them have repeatedly submitted very specific program proposals to the. Board of Supervisors and Probation Depart- meat involving rrew and tested ideas, which the Board and Probation Department havec,onsistently ignored. We can only conclude that. our county officials are out of touch with the. recent progress made in these: matters and too set in their ways to change quickly enough to meet tle present crisis created by rapid population ,ro •nth and the concurrent rise in crime and delinquency. We suggest to the citizen, of Contra Costa County that unless there is an immediate change of direction in the handling of delinquent children in this county, the present County Adrninis- tration should be replaced by men with deeper perception, more flexibility and greater foresight. Probation Corffni ttee